Foundations for measuring equality: A discussion paperfor the Equalities Review

The Equalities Review is an independent panel set up by the UK government in2005 to investigate the persistence of social inequalities and to makerecommendations for the development of a unified Commission for Equalityand Human Rights. This paper was originally written for the Review. Itcanvasses possible responses to the questions, ‘equality between whom?’ and‘equality of what?’. It argues that equality of outcome is intuitively appealingbut risks ignoring variations in need, differences in values and preferences, andthe importance of individual agency. A broad interpretation of equality ofopportunity, such as is provided by the capability approach, can address theselimitations, by focusing on the substantive freedom enjoyed by individuals.Substantive freedom may be limited by a lack of personal resources, or by theeconomic, social, political, cultural, and environmental conditions context inwhich the individual is operating. The paper concludes by identifying, andindicating solutions to, a number of measurement issues that arise inoperationalising the capability approach.[...]