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Redalyc.Pobreza En Colombia: Tipos De Medición Y Evolución De Estudios Gerenciales ISSN: 0123-5923 [email protected] Universidad ICESI Colombia Ramírez R., Carlos Enrique; Rodríguez Bravo, Johann Pobreza en Colombia: Tipos de medición y evolución de políticas entre los años 1950 y 2000 Estudios Gerenciales, núm. 85, octubre - diciembre, 2002 Universidad ICESI Cali, Colombia Disponible en: http://www.redalyc.org/articulo.oa?id=21208504 Cómo citar el artículo Número completo Sistema de Información Científica Más información del artículo Red de Revistas Científicas de América Latina, el Caribe, España y Portugal Página de la revista en redalyc.org Proyecto académico sin fines de lucro, desarrollado bajo la iniciativa de acceso abierto POBREZA EN COLOMBIA: TIPOS DE MEDICIÓN Y EVOLUCIÓN DE POLÍTICAS ENTRE LOS AÑOS 1950 Y 2000 Carlos Enrique Ramírez R. Director Programa de Economía y Negocios Internacionales Universidad Icesi; Magíster en Negocios Internacionales University of North London; Magíster en Estudios Políticos Universidad Javeriana; Economista Universidad Javeriana JOHANN RODRÍGUEZ BRAVO Estudiante de décimo semestre de Economía y Negocios Internacionales de la Universidad ICESI Fecha de recepción: 26-09-2002 Fecha de aceptación: 20-12-2002 RESUMEN literatura económica y las institucio- El fenómeno de la pobreza en Colom- nes como el Banco Mundial y el Ban- bia es una compleja red de factores co Interamericano de Desarrollo su- entrelazados. Las definiciones actua- gieren algunas alternativas para sa- les se circunscriben a indicadores es- lir del problema, pero cada país es tándar internacionalmente acepta- único y debe adaptar sus políticas a dos, que se basan principalmente en su propio contexto. el nivel de ingresos y en necesidades básicas insatisfechas. Sin embargo, la PALABRAS CLAVES elección de estos índices puede traer Pobreza, línea de pobreza, desigual- sesgos de exclusión y de inclusión des- dad, educación. viando el resultado de las políticas Clasificación: C públicas. Los gobiernos desde 1930 se han preocupado por la creación de ABSTRACT programas que reduzcan la pobreza, pero sólo desde la década de los cin- The phenomenon of the poverty in cuenta se empezaron a ver los resul- Colombia is a complex net of interla- tados. En los últimos cincuenta años, ced factors. The current definitions los niveles de pobreza medidos por are circumscribed to internationally necesidades han venido disminuyen- standard indicators that are based on do, pero en la última década, el cam- the level of income and unsatisfied bio estructural y la recesión de 1998 basic necessities, however, the elec- y 1999 retrasaron once años la cali- tion of these indexes can bring exclu- dad de vida de los colombianos. La sion and inclusion biases deviating Pobreza en Colombia: ESTUDIOS Tipos de medición y evolución de políticas entre los años 1950 y 2000 GERENCIALES 81 the result of the public policies. Sin- the institutions like the World Bank ce 1930 governments have worried and the Inter-American Development about the creation of programs that Bank suggest some alternatives to reduce the poverty, but only since the leave the problem, but each country fifties the results began to be seen. is unique and it should adapt their In the last 50 years, levels of poverty policies to its own context. have decreased, but in the last deca- de, the structural change and the re- cession of 1998 and 1999, retarded 11 KEY WORDS: years the quality of life of the Colom- Poverty, Line of Poverty, Inequality, bians. The economic literature and Education ESTUDIOS 82 GERENCIALES No. 85 • Oct. - Dic. de 2002 INTRODUCCIÓN escuela y no saber leer. La pobreza es Entender la pobreza es muy comple- no tener trabajo, tener miedo al futu- jo, sobre todo porque es el resultado ro y vivir día a día”.1 de una serie concatenada de factores Según Amartya Sen,2 premio Nóbel que se alimentan unos a otros. Defi- de Economía en 1998 por sus traba- nir la pobreza es algo que la economía jos sobre la distribución del ingreso y ha intentado desde sus variables ma- el bienestar económico, la pobreza no croeconómicas más conocidas: ingre- es simplemente la falta de ingreso, so y consumo; pero, aunque los estu- sino la falta de capacidades básicas y dios hayan mejorado las formas de de libertad para obtenerlo. Los es- abordar los problemas, siguen exis- fuerzos teóricos por acotar el térmi- tiendo desacuerdos en cuanto al sig- no entre cantidades y cualidades, sin nificado real de la pobreza. La econo- embargo, seguirán siendo una aproxi- mía, desde los trabajos de Smith has- mación “lejana” al verdadero signifi- ta finales de 1940, se concentró en el cado que hay detrás del sufrimiento problema de la riqueza, dejando a un que experimenta una persona consi- lado la investigación científica y rigu- derada como pobre . rosa del fenómeno de la pobreza; no obstante, en el período inmediatamen- El objetivo de este ensayo es reseñar te posterior a la Segunda Guerra Mun- la evolución de la pobreza en Colom- dial, la división política y económica bia en los últimos cincuenta años. En del mundo creó las condiciones para la primera parte, se hará referencia a que los académicos empezaran a tra- las formas básicas de medir la pobre- tar el tema de la pobreza y el subde- za (necesidades básicas insatisfechas, sarrollo con un mayor rigor. Desde los línea de pobreza e indigencia, índice primeros trabajos de la economía del de calidad de vida, índice de desarro- desarrollo y, posteriormente, de la eco- llo humano y coeficiente de Gini). En nomía del crecimiento, se aportó mu- la segunda sección, el objetivo es po- chísimo al estudio de la pobreza como ner de manifiesto las políticas socia- problema económico y social. Las de- les que los gobiernos han implemen- finiciones que se dan sobre pobreza, tado durante los últimos cincuenta en general, van por un mismo cami- años, y describir cómo ha permaneci- no: ser pobre es no disponer de los re- do el bienestar de los colombianos; esta cursos para obtener los medios míni- parte del trabajo está compuesta por mos de subsistencia; pero la pobreza seis subtítulos que resumen específi- es mucho más. Para el Banco Mun- camente lo acontecido en uno o en va- dial “la pobreza es hambre. La pobre- rios períodos presidenciales. En la ter- za es falta de techo bajo el cual res- cera sección se retomarán algunos as- guardarse. La pobreza es estar enfer- pectos de la pobreza en Colombia (el mo y no poder ser atendido por un atraso rural y la desigualdad) con el médico. La pobreza es no poder ir a la objetivo de abarcar dimensiones más 1. www.worldbank.org/poverty 2. “[...] poverty must be seen as deprivation of the basic capabilities rather than merely as lowness of incomes, which is the standard criterion of identification of poverty” (Sen, 1999). Pobreza en Colombia: ESTUDIOS Tipos de medición y evolución de políticas entre los años 1950 y 2000 GERENCIALES 83 amplias alrededor de la pobreza. Para nos metodológicos se encuentran li- cerrar, se presentan unas conclusio- mitaciones. Lo que se ha terminado nes generales y se hacen varias suge- haciendo es contextualizando la po- rencias y recomendaciones con el fin breza alrededor de “indicadores que de pensar en algunas soluciones fren- comparan el nivel de vida con el “es- te al problema. tilo de vida” imperante en la socie- dad” (Cuéllar y Uribe, 2001). FORMAS DE MEDIR LA POBREZA A continuación se presentarán los La forma en que se ha abordado el indicadores comúnmente utilizados tema de la pobreza ha sido a través para medir la pobreza. de métodos que miden la calidad de vida y el nivel de ingresos suficiente para subsistir; pero incluso con esos Necesidades básicas métodos no se puede apartar la sub- insatisfechas jetividad. La pobreza es relativa, por Indicador que señala la carencia o ejemplo, “¿puede considerarse pobre insuficiencia por parte de un hogar una familia que no puede permitir- de una de las siguientes cinco necesi- se un carro? En algunos países en dades básicas: vivienda con materia- que los carros sean aún el lujo de los les adecuados, servicios públicos de ricos la respuesta será “No”; pero acueducto y alcantarillado, nivel bajo quizá sería “Sí” en algunas comuni- de hacinamiento (menos de tres per- dades de Estados Unidos” (Meade, sonas por cuarto), bajo grado de de- 1985). Por lo tanto, toda medición o pendencia (menos de tres personas a definición de pobreza debe circuns- cargo de cada trabajador del hogar, cribirse al lugar y al tiempo, pues con educación) y niños entre los 7 y aunque según el estándar interna- los 11 años con asistencia escolar idó- cional ser pobre es vivir con menos nea. Si el hogar tiene una necesidad de dos dólares al día, muy segura- insatisfecha se considera que está en mente en los países desarrollados un condiciones de pobreza y si tiene más individuo con un ingreso por encima de una se considera en miseria. del promedio mundial sea también considerado pobre. Las nociones de De acuerdo con el boletín No. 26 del pobreza, como ya se mencionó antes, DNP, entre 1973 y 1996 la pobreza en son tan difusas que es muy difícil Colombia medida en términos de las darles un cuerpo teórico; por tanto, NBI se reduce significativamente, se considera que son altamente nor- pero después de 1996 se presentan mativas y para definirlas en térmi- signos de estancamiento (Ver Tabla 1). Tabla 1. Indice de pobrezas. 1985 1993 1996 1997 1998 1999 % Personas 1 NBI 45.6 37.2 26 25.9 26 24.9 % Personas +1 NBI 22.8 14.9 8.9 8.6 8.2 7.3 Fuente: Cálculos DNP-UDS-Diogs con base en Dane, censos de 1983 y 1993.
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