1 Introduction
2 Official Measurement of Child Poverty in the UK Since 1999
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An ‘absolute’ low income measure (below 60% of the median equivalised household income in 1998/99, before housing costs (BHC), uprated with price inflation)—“to measure whether the poorest families are seeing their incomes rise in real terms”.
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A relative low income measure (below 60% of contemporary median equivalised household income BHC)—“to measure whether the poorest families are keeping pace with the growth of incomes in the economy as a whole”.
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A combined measure of material deprivation and low income (below 70% of median income BHC and falling below a material deprivation threshold)—“to provide a wider measure of people’s living standards”.
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Persistent poverty (children living in households below the relative income poverty line in three of the past 4 years).
3 Social Scientists’ Understanding of Poverty
3.1 Fundamentally About a Lack of Material Resources?
3.2 Multidimensional Approaches
3.3 60% Median: A Deeply Flawed Measure?
4 Views of Wider Stakeholders: The 2012–2013 Consultation on Child Poverty Measurement
4.1 Method
Academic/thinktank (%) | National child poverty organisations (%) | Local authority (%) | Frontline services (%) | Other/uncategorized (%) | Total (%) | |
---|---|---|---|---|---|---|
Yes
|
92
|
91
|
97
|
80
|
79
|
88
|
No
|
5
|
0
|
0
|
0
|
0
|
1
|
Of yes
| ||||||
Yes, poverty is a lack of material resources
|
79
|
78
|
46
|
40
|
53
|
57
|
Yes, we should not switch measures now
|
0
|
0
|
5
|
2
|
2
|
2
|
Yes, within a multidimensional approach
|
10
|
11
|
27
|
24
|
11
|
18
|
With income as a central measure |
5
|
9
|
24
|
18
|
8
|
14
|
Income included but not a headline indicator |
5
|
2
|
3
|
5
|
4
|
4
|
Yes, but with changes to the measures:
|
3
|
2
|
19
|
15
|
13
|
11
|
Minimum Income Standard (or similar) |
0
|
2
|
10
|
2
|
8
|
5
|
Focus on current ‘absolute’ measure |
0
|
0
|
3
|
0
|
0
|
1
|
A subsistence-type measure |
3
|
0
|
5
|
13
|
6
|
6
|
Of no
| ||||||
No, use an expenditure measure instead
|
3
|
0
|
0
|
0
|
0
|
0
|
No to measures of material resources
|
3
|
0
|
0
|
0
|
0
|
0
|
N/A | 3 | 9 | 3 | 20 | 21 | 12 |
Number of responses in each category | 39 | 45 | 59 | 55 | 53 | 251 |
4.2 Is There Support for a Move to Abandon Income-Based Poverty Measures?
Poverty is about lack of money.(Meadows Advice Group; frontline service)
Largely, responses in this group revealed an informed understanding of the Child Poverty Act. Almost all advocated maintaining the existing approach to measurement, sometimes proposing additional indicators, and often highlighting the way the suite of measures worked together.While many families have multiple problems such as addiction issues that need to be addressed these problems are NOT POVERTY. It is also unhelpful to confuse causes of poverty, such as unemployment, and consequences, such as debt, with poverty itself.(South Ayrshire Welfare Rights Centre; frontline service)
The remainder of responses fit into two groups: those who wanted income measures to continue to be monitored but as part of a multidimensional approach; and those who wanted them to be monitored but preferred a change in the indicators used. These positions are explored in more detail in the following two sub-sections, but we highlight here the small group (ten respondents in all, or 4%) who wanted to see income measures downgraded within a multidimensional approach—i.e. not given special or ‘headline’ status. For some, this was driven by a focus on the positives of wider dimensions rather than the limitations of an income measure; the National Council of Women of Great Britain are in this category because of their enthusiasm for measures of additional dimensions, but they still note that “family income levels will always be central to consideration of child poverty”. But there are two more critical reasons for wanting income downgraded.…Given the impact of the recession and of the welfare reform changes on children across the UK, it is imperative that the focus of UK and devolved governments should be on taking concerted action to tackle child poverty, rather than again reviewing child poverty measurement.(Northern Ireland Commissioner for Children and Young People; other)
4.3 Multidimensional Perspectives
A subset of this group are responses which support wider measurement approaches from a ‘single interest’ perspective; one such is the Family Holiday Association, which called for the inclusion of a measure monitoring a child’s access to leisure time and recreational activity. These responses demand a broader perspective but from a particular and unidimensional angle.Poverty is a multi-dimensional and multi-faceted phenomenon, which is not based upon income alone… Factors such as unmanageable debt and poor quality housing… family instability and poor parental health… represent forms of poverty in their own right.(Caritas Social Action Network; our emphasis)
Note that the idea that the experience of poverty is broader than a lack of income is very widely shared, but only a few responses indicate (or do not explicitly rule out the idea) that the non-material aspects of this experience should be considered part of poverty measurement itself.We welcome the proposal to introduce select other dimensions in the measurement as this recognises that, when combined with low income, other negative experiences such as the household’s indebtedness, parental poor health, and poor housing can make children’s experience of poverty worse.(Hyde Group, frontline services)
It is striking and perhaps surprising that there is so little evidence in the responses of a multi-dimensional perspective on poverty. In part this may illustrate the conventional understanding of what poverty means, as discussed above. Numerous responses emphasise that they would like to see broader indicators tracked but under different headings—well-being; factors influencing life chances; risk factors for poverty—but not as indicators of poverty itself. However, the lack of support for a broader approach is no doubt also a reaction to both the political context and the way the consultation document was framed. This could help explain why the results differ strongly from those that have been identified in other exercises; for example, workshops with members of the public conducted in 2010 by the think tank Demos found that an “overwhelming majority” of participants favoured a “Mexican-style” multidimensional approach, including measures of housing and access to health care among other indicators, to the UK suite-of-four (Sodha and Bradley 2010).The single most important measure is being in fulltime work and earning a living wage… Work is likely to be the single most effective way out of poverty. Parents’ worklessness can also impact on the quality of life of the child as it has potential to cause, or be caused by, other issues such as mental health issues.(Buckinghamshire County Council)
If the government had decided to introduce a multidimensional measure alongside existing measures, and made this very clear, responses may have been different. If there was greater trust in government in relation to action on income poverty, they may have been more different still.Changing measurement of child poverty to look at a number of dimensions will effectively take the focus away from those households that are increasingly struggling for survival based on a lack of sufficient income.(Riverside Group Ltd, social housing provider; frontline service).
4.4 Should the Measures be Changed? Support for a Relative Approach
There were 37 responses (15%) that wanted to change (not just add to) the CPA suite. Did they want to ditch a relative indicator? Not all were clear on this question, but of those that can be interpreted most were not critical of a relative concept, advocating the inclusion of a relative income measure as part of a broader multidimensional basket (nine responses) or calling for a switch to a consensual minimum income standard (MIS) like that of the JRF, which is itself inherently relative (six responses). For some of these, the value of a MIS was that it may be more intuitive to the public, while others wanted to move away from 60% of median because of the recession concern. All of these, however, retained a common assumption that poverty is a relative concept and that the measure must capture this.The decline in relative poverty noted recently can be readily understood by the general public with explanation and is understood by many people living in poverty as expressed by the following quote: ‘I don’t feel quite so bad about myself now other families are experiencing hard times as well’.(One Parent Families Scotland; frontline service)