Inequality, Race, and Remedy
Our nation, at its best, pursues the ideal that what we look like and where we come from should not determine the benefits, burdens, or responsibilities that we bear in our society. Because we believe that all people are created equal in terms of rights, dignity, and the potential to achieve great things, we see inequality based on race, gender, and other social characteristics as not only unfortunate but unjust. The value of equality, democratic voice, physical and economic security, social mobility, a shared sense of responsibility for one another, and a chance to start over after misfortune or missteps -- what many Americans call redemption -- are the moral pillars of the American ideal of opportunity.
Many Americans of goodwill who want to reduce poverty believe that race is no longer relevant to understanding the problem, or to fashioning solutions for it. This view often reflects compassion as well as pragmatism. But we cannot solve the problem of poverty -- or, indeed, be the country that we aspire to be -- unless we honestly unravel the complex and continuing connection between poverty and race.
Since our country's inception, race-based barriers have hindered the fulfillment of our shared values and many of these barriers persist today. Experience shows, moreover, that reductions in poverty do not reliably reduce racial inequality, nor do they inevitably reach low-income people of color. Rising economic tides do not reliably lift all boats.
In 2000, after a decade of remarkable economic prosperity, the poverty rate among African Americans and Latinos taken together was still 2.6 times greater than that for white Americans. This disparity was stunning, yet it was the smallest difference in poverty rates between whites and others in more than three decades. And from 2001 to 2003, as the economy slowed, poverty rates for most communities of color increased more dramatically than they did for whites, widening the racial poverty gap. From 2004 to 2005, while the overall number of poor Americans declined by almost 1 million, to 37 million, poverty rates for most communities of color actually increased. Reductions in poverty do not inevitably close racial poverty gaps, nor do they reach all ethnic communities equally.
Poor people of color are also increasingly more likely than whites to find themselves living in high-poverty neighborhoods with limited resources and limited options. An analysis by The Opportunity Agenda and the Poverty & Race Research Action Council found that while the percentage of Americans of all races living in high-poverty neighborhoods (those with 30 percent or more residents living in poverty) declined between 1960 and 2000, the racial gap grew considerably. Low-income Latino families were three times as likely as low-income white families to live in these neighborhoods in 1960, but 5.7 times as likely in 2000. Low-income blacks were 3.8 times more likely than poor whites to live in high-poverty neighborhoods in 1960, but 7.3 times more likely in 2000.
These numbers are troubling not because living among poor people is somehow harmful in itself, but because concentrated high-poverty communities are far more likely to be cut off from quality schools, housing, health care, affordable consumer credit, and other pathways out of poverty. And African Americans and Latinos are increasingly more likely than whites to live in those communities. Today, low-income blacks are more than three times as likely as poor whites to be in "deep poverty" -- meaning below half the poverty line -- while poor Latinos are more than twice as likely.
The Persistence of Discrimination
Modern and historical forces combine to keep many communities of color disconnected from networks of economic opportunity and upward mobility. Among those forces is persistent racial discrimination that, while subtler than in past decades, continues to deny opportunity to millions of Americans. Decent employment and housing are milestones on the road out of poverty. Yet these are areas in which racial discrimination stubbornly persists. While the open hostility and "Whites Only" signs of the Jim Crow era have largely disappeared, research shows that identically qualified candidates for jobs and housing enjoy significantly different opportunities depending on their race.
In one study, researchers submitted identical résumés by mail for more than 1,300 job openings in Boston and Chicago, giving each "applicant" either a distinctively "white-sounding" or "black-sounding" name -- for instance, "Brendan Baker" versus "Jamal Jones." Résumés with white-sounding names were 50 percent more likely than those with black-sounding names to receive callbacks from employers. Similar research in California found that Asian American and, especially, Arab American résumés received the least-favorable treatment compared to other groups. In recent studies in Milwaukee and New York City, meanwhile, live "tester pairs" with comparable qualifications but of differing races tested not only the effect of race on job prospects but also the impact of an apparent criminal record. In Milwaukee, whites reporting a criminal record were more likely to receive a callback from employers than were blacks without a criminal record. In New York, Latinos and African Americans without criminal records received fewer callbacks than did similarly situated whites, and at rates comparable to whites with a criminal record.
Similar patterns hamper the access of people of color to quality housing near good schools and jobs. Research by the U.S. Department of Housing and Urban Development (HUD) shows that people of color receive less information from real-estate agents, are shown fewer units, and are frequently steered away from predominantly white neighborhoods. In addition to identifying barriers facing African Americans and Latinos, this research found significant levels of discrimination against Asian Americans, and that Native American renters may face the highest discrimination rates (up to 29 percent) of all.
This kind of discrimination is largely invisible to its victims, who do not know that they have received inaccurate information or been steered away from desirable neighborhoods and jobs. But its influence on the perpetuation of poverty is nonetheless powerful.
The Present Legacy of Past Discrimination
These modern discriminatory practices often combine with historical patterns. In New Orleans, for example, as in many other cities, low-income African Americans were intentionally concentrated in segregated, low-lying neighborhoods and public-housing developments at least into the 1960s. In 2005, when Hurricane Katrina struck and the levees broke, black neighborhoods were most at risk of devastation. And when HUD announced that it would close habitable public-housing developments in New Orleans rather than clean and reopen them, it was African Americans who were primarily prevented from returning home and rebuilding. This and other failures to rebuild and invest have exacerbated poverty -- already at high levels -- among these New Orleanians.
In the case of Native Americans, a quarter of whom are poor, our government continues to play a more flagrant role in thwarting pathways out of poverty. Unlike other racial and ethnic groups, most Native Americans are members of sovereign tribal nations with a recognized status under our Constitution. High levels of Native American poverty derive not only from a history of wars, forced relocations, and broken treaties by the United States but also from ongoing breaches of trust -- like our government's failure to account for tens of billions of dollars that it was obligated to hold in trust for Native American individuals and families. After more than a decade of litigation, and multiple findings of governmental wrongdoing, the United States is trying to settle these cases for a tiny fraction of what it owes.
The trust-fund cases, of course, are just the latest in a string of broken promises by our government. But focusing as they do on dollars and cents, they offer an important window into the economic status that Native American communities and tribes might enjoy today if the U.S. government lived up to its legal and moral obligations.
Meanwhile, the growing diversity spurred by new immigrant communities adds to the complexity of contemporary poverty. Asian American communities, for example, are culturally, linguistically, and geographically diverse, and they span a particularly broad socioeconomic spectrum.
Census figures from 2000 show that while one-third of Asian American families have annual incomes of $75,000 or more, one-fifth have incomes of less than $25,000. While the Asian American poverty rate mirrored that of the country as a whole, Southeast Asian communities reflected far higher levels. Hmong men experienced the highest poverty level (40.3 percent) of any racial group in the nation.
Race and Public Attitudes
Americans' complex attitudes and emotions about race are crucial to understanding the public discourse about poverty and the public's will to address it. Researchers such as Martin Gilens and Herman Gray have repeatedly found that the mainstream media depict poor people as people of color -- primarily African Americans -- at rates far higher than their actual representation in the population. And that depiction, the research finds, interacts with societal biases to erode support for antipoverty programs that could reach all poor people.
Gilens found, for instance, that while blacks represented only 29 percent of poor Americans at the time he did his research, 65 percent of poor Americans shown on television news were black. In a more detailed analysis of TV newsmagazines in particular, Gilens found a generally unflattering framing of the poor, but the presentation of poor African Americans was more negative still. The most "sympathetic" subgroups of the poor -- such as the working poor and the elderly -- were underrepresented on these shows, while unemployed working-age adults were overrepresented. And those disparities were greater for African Americans than for others, creating an even more unflattering (and inaccurate) picture of the black poor.
Gray similarly found that poor African Americans were depicted as especially dysfunctional and undeserving of assistance, with an emphasis on violence, poor choices, and dependency. As Gray notes, "The black underclass appears as a menace and a source of social disorganization in news accounts of black urban crime, gang violence, drug use, teenage pregnancy, riots, homelessness, and general aimlessness. In news accounts & poor blacks (and Hispanics) signify a social menace that must be contained."
Research also shows that Americans are more likely to blame the plight of poverty on poor people themselves, and less likely to support antipoverty efforts, when they perceive that the people needing help are black. These racial effects are especially pronounced when the poor person in the story is a black single mother. In one study, more than twice the number of respondents supported individual solutions (like the one that says poor people "should get a job") over societal solutions (such as increased education or social services) when the single mother was black.
This research should not be surprising. Ronald Reagan, among others, effectively used the "racialized" mental image of the African American "welfare queen" to undermine support for antipoverty efforts. And the media face of welfare recipients has long been a black one, despite the fact that African Americans have represented a minority of the welfare population. But this research also makes clear that unpacking and disputing racial stereotypes is important to rebuilding a shared sense of responsibility for reducing poverty in all of our communities.
Removing Racial Barriers
We cannot hope to address poverty in a meaningful or lasting way without addressing race-based barriers to opportunity. The most effective solutions will take on these challenges together.
That means, for example, job-training programs that prepare low-income workers for a globalized economy, combined with antidiscrimination enforcement that ensures equal access to those programs and the jobs to which they lead. Similarly, strengthening the right to organize is important in helping low-wage workers to move out of poverty, but it must be combined with civil-rights efforts that root out the racial exclusion that has sometimes infected union locals. And it means combining comprehensive immigration reform that offers newcomers a pathway to citizenship with living wages and labor protections that root out exploitation and discourage racial hierarchy.
Another crucial step is reducing financial barriers to college by increasing the share of need-based grants over student loans and better coordinating private-sector scholarship aid -- for example, funds for federal Pell Grants should be at least double current levels. But colleges should also retain the flexibility to consider racial and socioeconomic background as two factors among many, in order to promote a diverse student body (as well as diverse workers and leaders once these students graduate). And Congress should pass the DREAM Act, which would clear the path to a college degree and legal immigration status for many undocumented students who've shown academic promise and the desire to contribute to our country.
Lack of access to affordable, quality health care is a major stress on low-income families, contributing to half of the nation's personal bankruptcies. Guaranteed health care for all is critical, and it must be combined with protections against poor quality and unequal access that, research shows, affect people of color irrespective of their insurance status.
Finally, we must begin planning for opportunity in the way we design metropolitan regions, transportation systems, housing, hospitals, and schools. That means, for example, creating incentives for mixed-income neighborhoods that are well-publicized and truly open to people of all races and backgrounds.
A particularly promising approach involves requiring an "opportunity impact statement" when public funds are to be used for development projects. The statement would explain, for example, whether a new highway will connect low-income communities to good jobs and schools, or serve only affluent communities. It would detail where and how job opportunities would flow from the project, and whether different communities would share the burden of environmental and other effects (rather than having the project reinforce traditional patterns of inequality). It would measure not only a project's expected effect on poverty but on opportunity for all.
When we think about race and poverty in terms of the shared values and linked fate of our people, our approach to politics as well as policy begins to change. Instead of balancing a list of constituencies and identity groups, our task becomes one of moving forward together as a diverse but cohesive society, addressing through unity the forces that have historically divided us.
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