Do Rising Tides Lift All Boats? The Impact of Secular and Cyclical Changes on Poverty

Discussions about the antipoverty effects of economic growth in the United States have largely been predicated on John Kennedy's metaphor that a rising tide lifts all boats. But the magnitude of these effects has been a subject of debate since the inception of the War on Poverty (see Lowell Gallaway, 1965, and Henry Aaron, 1967). This debate has public policy as well as academic implications-the greater the antipoverty effectiveness of growth, the less the need for special programs or income supplements during economic expansions. Elsewhere, we have shown that increased real income need not be associated with a decline in poverty (see our 1984 and 1985 papers). In fact, poverty rates did not fall from 1982 to 1983, even though real median income increased. And in 1984 the official poverty rate was about the same as it was in 1967, while real median family income was 7.1 percent above its 1967 level.' If a rising tide was lifting all boats, the tide was late in many harbors. In this paper we examine the relationship between macroeconomic conditions and poverty. Section I argues that several factors now limit the effectiveness of growth in reducing poverty. Section II differentiates the effects of secular economic growth from those of cyclical recoveries. The next section presents our interpretation of the data, followed by a brief conclusion. We show that growth had a large antipoverty effect through the early 1970's, but that the more recent experience has been different because growth rates have slowed and inequality has increased.