metadata: authors: 0: author: Calvo-Gonzalez,Oscar
1: author: Eizmendi,Axel
2: author: Reyes,German Jeremias
count: Latin America
docna: 0: docna: The changing way governments talk about
            poverty and inequality : evidence from two centuries of
            Latin American presidential speeches
docty: Policy Research Working Paper
subtopic: Judicial System Reform,Educational Sciences,Social Development & Poverty,Inequality,Armed Conflict
teratopic: Macroeconomics and Economic Growth,Governance,Industry,Science and Technology Development,Public Sector Development,Poverty Reduction
abstracts: cdata!: This study uses text mining techniques
            on almost 900 presidential
            "state-of-the-union"--type speeches from 10 Latin
            American countries from 1819 to 2016. The paper documents a
            sharp increase in recent decades in references to poverty
            and inequality. The study's long-term view shows that
            the way in which poverty and inequality are discussed has
            been changing. Using a Latent Dirichlet Allocation
            algorithm, the paper shows that in recent years poverty has
            been increasingly discussed as a broader multidimensional
            challenge that requires a variety of social programs.
            Inequality has been increasingly framed as an issue of equal
            opportunities, whereas previously there was a greater focus
            on social justice. The paper assesses whether the prevalence
            of poverty and inequality in presidential speeches
            correlates with measures such as social public spending, as
            well as the poverty and inequality levels of the country. It
            finds that during the 2000s, the countries that discussed
            poverty and inequality at greater length were also the ones
            that increased social spending and reduced poverty and
            inequality the most.
repnme: repnme: The changing way governments talk about
            poverty and inequality : evidence from two centuries of
            Latin American presidential speeches
display_title: The changing way governments talk
            about poverty and inequality : evidence from two centuries
            of Latin American presidential speeches
listing_relative_url: /research/2018/01/29524667/changing-way-governments-talk-poverty-inequality-evidence-two-centuries-latin-american-presidential-speeches
topicv3: Justice m1326106 840,Poverty m1326687 695,Education m1327048 470,Political Violence and War m1327310 2462,Social Development m1327660 134
publishtoextweb_dt: 2018-01-22T00:00:00Z
historic_topic: Macroeconomics and Economic Growth,Governance,Industry,Science and Technology Development,Public Sector Development,Poverty Reduction
no_of_pages: 45
author_keys: 0: author_key: 915932
1: author_key: 1381792
model_extractions: WPS8311 Policy Research Working Paper 8311 The Changing Way Governments Talk about Poverty and Inequality Evidence from Two Centuries of Latin American Presidential Speeches _Oscar Calvo-González Axel Eizmendi Germán Reyes_ Poverty and Equity Global Practice Group January 2018
Policy Research Working Paper 8311

# **Abstract**

This study uses text mining techniques on almost 900 presidential “state-of-the-union”—type speeches from 10 Latin American countries from 1819 to 2016. The paper documents a sharp increase in recent decades in references to poverty and inequality. The study’s long-term view shows that the way in which poverty and inequality are discussed has been changing. Using a Latent Dirichlet Allocation algorithm, the paper shows that in recent years poverty has been increasingly discussed as a broader multidimensional challenge that requires a variety of social programs.

Inequality has been increasingly framed as an issue of equal opportunities, whereas previously there was a greater focus on social justice. The paper assesses whether the prevalence of poverty and inequality in presidential speeches correlates with measures such as social public spending, as well as the poverty and inequality levels of the country. It finds that during the 2000s, the countries that discussed poverty and inequality at greater length were also the ones that increased social spending and reduced poverty and inequality the most.

This paper is a product of the Poverty and Equity Global Practice Group. It is part of a larger effort by the World Bank to provide open access to its research and make a contribution to development policy discussions around the world. Policy Research Working Papers are also posted on the Web at http://econ.worldbank.org. The authors may be contacted at ocalvogonzalez@worldbank.org.

_The Policy Research Working Paper Series disseminates the findings of work in progress to encourage the exchange of ideas about development issues. An objective of the series is to get the findings out quickly, even if the presentations are less than fully polished. The papers carry the names of the authors and should be cited accordingly. The findings, interpretations, and conclusions expressed in this paper are entirely those of the authors. They do not necessarily represent the views of the International Bank for Reconstruction and Development/World Bank and its affiliated organizations, or those of the Executive Directors of the World Bank or the governments they represent._ Produced by the Research Support Team
# The Changing Way Governments Talk about Poverty and Inequality:

Evidence from Two Centuries of Latin American Presidential Speeches<sup>*</sup> Oscar Calvo-González<sup>†</sup> , Axel Eizmendi<sup>‡</sup> , Germán Reyes<sup>§</sup> JEL Classification: I32, D63, D72, N16 Keywords: Poverty, Inequality, Text Mining, Presidential Speeches, Latin America

> * The authors would like to thank Laura Chioda, Alexandru Cojocaru, Peter Hakim, Luis Felipe Lopez-Calva, Bill Maloney, Ambar Narayan, Mariano Tommasi, Roy Van der Weide, and participants at an internal seminar for fruitful discussions and suggestions. We also thank Sandra Pastrán, Evangelina Cabrera, Yalile Uarac, and César Polit and Martha Narvaez, for compiling and forwarding to us multiple speeches from Argentina, Paraguay, Chile and Ecuador, respectively. Natalia García-Peña Bersh helped compile data from Colombia. We are grateful to the Research Support Budget from the World Bank for financial support.

> † Poverty and Equity Global Practice, World Bank. Mail: ocalvogonzalez@worldbank.org

> ‡ University of Oxford, Oxford, UK. Mail: axel.eizmendi.larrinaga@gmail.com

> § Cornell University, Ithaca, NY, USA. Mail: gjr66@cornell.edu
# **1. Introduction**

Presidential speeches provide a general reflection of the political priorities and concerns of each government. This is particularly the case of the annual presidential speech to parliaments on the state of their country that the constitutions of many countries mandate. In this paper we provide the first-ever systematic analysis of those annual speeches of Latin American presidents to parliaments over the last two centuries to explore the importance of poverty and inequality as issues drawing political attention in the region.

The present work examines the evolution of poverty and inequality in Latin American political discourse over the last 200 years. Specifically, it addresses the following questions: How has the prevalence of poverty and inequality in Latin American presidential speeches evolved over time? Has the conceptualization of poverty and inequality—i.e., the context of discussion—changed over time? How does the prevalence of poverty and inequality in political discourse relate to the extent of social expenditure, or to the corresponding objective measures of welfare, such as poverty and inequality indicators? In order to address these questions, we use text-mining techniques based on frequencies and co-occurrence of keywords—“Dictionary methods”—as well “topic modeling” to analyze a novel data set of presidential speeches spanning ten Spanish-speaking Latin American countries.

Our findings can be summarized as follows. First, we show that “poverty” and “inequality” have become more prevalent topics in the presidential speeches of Latin America, what we call a “poverty and inequality political enlightenment.” This result is robust to using different thresholds to assess the prevalence of the keywords, to analyzing alternative keywords, and the statistical significance of this result is confirmed via regression analysis. Second, this “enlightenment” seems to be part of a broader increase in socially-oriented policy concerns that is reflected in the overall content of the presidential speeches, as well as in the context in which poverty and inequality have been discussed over time. Specifically, the context in which these subjects are mentioned has evolved towards one that is focused on social development and equality of opportunities. Finally, we find that, on average, the countries that increased their social spending during the 2000s were the ones that devoted greater attention to these topics during the same period. We also find that, on average, relatively poorer countries and those with lower levels of public social spending tend to discuss more about poverty and inequality in their speeches. Relatedly, the most successful countries in reducing poverty and inequality were the ones that discussed these topics the most.

The paper most closely related to ours is Ravallion (2011), where he examines public attention and awareness of poverty through quantitative analysis of text. He uses the Google Books Ngram Viewer, which contains 5.2 million digitized books, to compute the relative frequencies of references to poverty and related topics in the English literature during the period 1700-2000. The incidence of these topics is interpreted as “a linguistic window on public awareness.” Ravallion observes that there was a strong “poverty 2
enlightenment” in the second half of the 18<sup>th</sup> century, with a sevenfold increase in the incidence of references to poverty between 1740 and 1790. Nevertheless, attention dwindled thereafter, and remained relatively low for the next 170 years until the “second poverty enlightenment” emerged around 1960. This second enlightenment saw an unprecedented increase in the incidence of references to poverty, doubling by the year 2000 to reach the all-time high of the 300-year period. In contrast, references to “inequality” in the English literature have been less frequent than references to “poverty,” although there are similarities in the time trends of both terms. Furthermore, the number of references to “inequality” has been rising gradually since 1960, paralleling the “second poverty enlightenment.” Our paper is also related to the incipient literature of text mining, particularly applied to policy issues. Using a dictionary method, Esser and Williams (2013) analyze how poverty and inequality have been framed and discussed in international development agencies’ publications—World Development Reports from the World Bank, Human Development Reports from the United Nations and several white papers from other bilateral agencies. Using the frequency and co-occurrence of words related to poverty and inequality, they conclude that references to poverty have, on average, been twice as prominent as references to inequality and that the conceptualizations and contexts in which both terms appear differ over time and between agencies.

Other related papers, mainly in the political science realm, have applied frequency-based dictionary methods similar to those we utilize to quantitatively analyze political speeches. Wang and McCallum (2006) apply a topic model to 200 years of State of the Union Addresses to extract the thematic content that dominates different time periods. Burden and Sanberg (2003) analyze presidential campaign speeches in the United States to identify the determinants of presidential campaign rhetoric related to the budget. Quinn et. al. (2010) employ a related model to analyze daily US Senate speeches and identify what policy areas receive most attention each day of the year.<sup>1</sup> To the best of our knowledge, our paper is the first to do text-analytic work related to poverty and inequality within the domain of political text, particularly in emerging countries.

The rest of the paper is organized as follows. Section two presents the data set we built as well as some descriptive statistics. The third section shows evidence of the increasing relevance of poverty and inequality in presidential discourse, along with robustness tests. In section four we assess whether the increasing relevance of poverty and inequality is part of a broader shift towards increased socially-oriented policy concerns. In section five, we explore how the context in which poverty and inequality are discussed has changed over time. In section six, we assess whether the content of the political speeches correlates with

> 1 Text mining techniques have also been used to position political speeches in a policy space. Proksch and Slapin (2009), for instance, apply these methods to extract policy positions from European Parliament speeches, while Benoit and Herzog (2015) scale the positions that Irish Members of Parliament hold regarding the national budget.

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measures of social public spending, and objective indicators of poverty and inequality. Section seven concludes.

# **2. Data**

We use a novel data set of presidential speeches, first used in a companion paper (CalvoGonzález et al., 2017). The data set is comprised of 888 speeches delivered during the period 1819-2016 in ten Spanish-speaking Latin American countries: Argentina, Chile, Colombia, Costa Rica, Dominican Republic, Ecuador, Mexico, Paraguay, Peru, and the República Bolivariana de Venezuela. Figure 1 shows the cumulative distribution of speeches by country and by year, while Appendix Table A1 details the precise number of observations on each decade by country.

**Figure 1. Accumulated number of presidential speeches by country over time**

<!-- Start of picture text --> Argentina 900<br>Chile<br>Colombia<br>Costa Rica<br>600<br>Dominican Rep.<br>Ecuador<br>Mexico<br>Paraguay 300<br>Peru<br>Venezuela<br>0<br>Number of speeches<br>1810 1830 1850 1870 1890 1910 1930 1950 1970 1990 2010<br><!-- End of picture text --> Source: Authors’ calculations.

Due to variability in data availability not every country nor every decade is represented equally in the data set. Mexico, Costa Rica, and the República Bolivariana de Venezuela are the most highly represented countries in the data set, each with 16% of total speeches. Argentina, Chile, Ecuador, Paraguay, and Peru have a moderate representation, between 6% and 12% of total speeches. Colombia and the Dominican Republic are equally underrepresented in the data set, with only 2% of total speeches each. Representation in terms of time periods also varies. The majority of speeches (70%) correspond to the period between 1920 and 2016, with the remaining 30% dating back to the 1819-1919 period.<sup>2</sup>

> 2 Excluding stop-words, the 888 speeches contain a total of 5,049,173 words, and 114,434 unique terms. The speeches from the 19<sup>th</sup> century (1819-1899) contain only 10% of the total words (and account for 23% of total

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# **3. The poverty and inequality political enlightenment**

To assess the increasing relevance of inequality and poverty among policy makers, we rely on the “dictionary method,” which examines how the frequency of keywords related to these two subjects evolved over time.<sup>3</sup> The choice of keywords for each topic (poverty and inequality) follows Esser and Williams (2013). In the case of poverty, we analyze prevalence of keywords “poverty” and “poor,” while in the case of inequality, we analyze the prevalence of “inequality,” “inequity,” “equity,” and “equality”. Later in the paper we also show the evolution of some related keywords and the results using possible synonyms as robustness checks. We begin by identifying the percentage of speeches that mention one of the keywords at least once. To smooth noisy fluctuations that arise from analyzing yearly data, we pool the speeches by decade. Figure 2 shows the percentage of presidential speeches that have mentioned the keywords each decade over the 1830-2016 period.

**Figure 2. Prevalence of “poverty” and “inequality” in presidential speeches**

_(% of speeches that contain each keyword by decade)_ <!-- Start of picture text --> (a) Poverty (b) Inequality<br>100 100<br>75 75<br>50 50<br>25 25<br>0 0<br>% of speeches % of speeches<br>1830 1850 1870 1890 1910 1930 1950 1970 1990 2010 1830 1850 1870 1890 1910 1930 1950 1970 1990 2010<br><!-- End of picture text --> Note: This Figure shows the percentage of presidential speeches on each decade that contained, at least once, the word “poverty” or “poor” for graph (a), and the word “inequality,” “inequity,” “equity” or “equality” for graph (b). The percentage was calculated by pooling the presidential speeches of 10 Latin American countries by decade. Sse Appendix A for more details about the data.

speeches). The share of words increases to 72% for the 20<sup>th</sup> century (which accounts for 59% of all speeches), and falls to 17.6% for the speeches delivered between 2001 and 2016.

3 These frequencies, provide an indication of the extent to which each text belongs to, or discusses, the subject of interest. For instance, a speech related to the budget would be expected to contain words such as “budget” or “deficit” at higher rates than would a speech discussing advances in medical science. According to this intuition, if the prevalence of a topic in political discourse increases over time, one would expect to see a corresponding increase in the usage of words related to that topic.

5
Figure 2 reveals that relatively few speeches referenced poverty two centuries ago. In fact, it was not until the 1850s that presidents began to mention the subject, and even then, the percentage of speeches that did so remained low (under 25%) throughout the entire 19<sup>th</sup> century. The topics of discussion were quite varied, and mostly unrelated with social issues. For example, Mexico’s 1886 presidential speech referred to the “poverty” of the tax system, while Ecuador’s 1875 referred to the “poor” past of the country. Mentions to poverty started to become more frequent during the 20<sup>th</sup> century. Half of speeches discussed poverty during the decade of the 1910s, and the share of speeches remained roughly at that level each subsequent decade until the 1940s. A remarkable “poverty political enlightenment” took place during the second half of the 20<sup>th</sup> century. Mentions of poverty began to rise at an unprecedented pace during the 1960s and 1970s, and by the 1980s, 71% of speeches explicitly referenced the subject. The increase became even more pronounced during the remaining decades, and by the 2000s, virtually all presidential speeches made an explicit mention of poverty (98.9%).

The evolution of mentions of inequality is not as linear as in the case of poverty. The first obvious difference is that inequality was a more common topic than poverty during the 1800s. In the 1830s, for example, a third of the speeches mentioned the subject, and the share remains around 30% for each decade of the 19<sup>th</sup> century. At the turn of the century, inequality became a more frequent subject, as the share of speeches mentioning it rose to 53% during the 1910s. Between 1900 and 1920, the share of speeches remained stable around 50%. Perhaps fueled by the Great Depression and the Second World War, references to inequality had a pronounced increase during the 1930s and 1940s, reaching 86.5% of the speeches by 1940s, and then reverted back to 52% during the 1950s.

As in the case of poverty, a pronounced and sustained increase in references to inequality—an “inequality political enlightenment”—began to take place beginning in the 1960s. In this case, the enlightenment seemed to occur in two stages, and unlike previous isolated spikes in speeches that mentioned inequality, there were no subsequent declines. The first stage took place between 1960 and 1980. Amid the Cold War context, this period was characterized by the increasing popularity of communist and leftist ideologies, as evidenced by the rise of revolutionary movements across Latin America. This period also saw the rise of military regimes—often running on anti-communist agendas—in countries such as Argentina, Chile, and Ecuador. In this political and ideological context, the share of speeches mentioning inequality increased to 66% by the 1970s, and remained around 73% during the 1980s and 1990s. The rise in speeches referencing inequality during the 1960s and 1970s was mainly driven by Mexico (18 speeches), the República Bolivariana de Venezuela (10 speeches) and Costa Rica (9 speeches).

Finally, with the onset of the new millennium came the second phase of the “inequality political enlightenment”: 81.5% of speeches discussed inequality during the 2000s and 93.8% did so during the 2010s (data available up to 2016). Unlike the increase in references 6
seen in the 1960s and 1970s, this time, mentions to inequality increased visibly in every country.

# **3.1 ROBUSTNESS OF THE ENLIGHTENMENT**

To assess the robustness of the poverty and inequality political enlightenment to different methodologies, we perform a similar analysis to the one presented in the previous section, but with some modifications. The first of these involves increasing the threshold of the number of times a speech must mention a keyword to be counted as referencing the subject. In other words, instead of considering that a presidential speech discusses poverty and inequality if the associated keywords are mentioned at least once, we increase the threshold to higher values. Figure 3 shows the percentage of presidential speeches on each decade that contained at least “�” times the relevant keywords, for �∈�1,2,3,4,5�.

## **Figure 3. Different thresholds to assess prevalence of poverty and inequality** _(% of speeches that contain each keyword at least “t” times by decade)_

<!-- Start of picture text --> (a) Poverty (b) Inequality<br>100 100<br>75 75<br>50 50<br>25 25<br>0 0<br>t = 1 t = 2 t = 3 t = 4 t = 5<br>% of speeches % of speeches<br>1830 1850 1870 1890 1910 1930 1950 1970 1990 2010 1830 1850 1870 1890 1910 1930 1950 1970 1990 2010<br><!-- End of picture text --> Note: This Figure shows the percentage of presidential speeches on each decade that contained at least “t” times the keywords “poverty” or “poor” (panel a), and the keywords “inequality,” “inequity,” “equity” or “equality” (panel b). The percentage was calculated by pooling the presidential speeches of 10 Latin American countries by decade. See Appendix A for more details about the data.

Increasing the threshold of words diminishes the percentage of speeches with the keywords, but the enlightenment remains. For example, with a threshold of at least five mentions, the percentage of speeches during the 2000s that mentioned poverty and inequality plummets from 98% to 78%, and from 81% to 38%, respectively. Nonetheless, the evolution of the frequencies tells the same story: the last decades saw a clear rise in the discussion of these subjects in political speech.

7
As a second robustness check we modify the measure of word prevalence to one based on relative frequencies. Relative frequencies are computed by dividing the number of times the keywords related to poverty and inequality are mentioned in each decade by the total number of words spoken in the speeches of the same decade. By converting this ratio to a percentage, the measure indicates the proportion of the speeches devoted to poverty and inequality during each decade. Figure 4 shows the results from this analysis.

**Figure 4. Relative frequency of poverty and inequality in presidential speeches**

_(Ratio of mentions to keywords to total words spoken in the speeches, by decade)_ <!-- Start of picture text --> 0.24%<br>Poverty<br>0.16%<br>0.08%<br>Inequality<br>0.00%<br>% of total words in all speeches<br>1830 1840 1850 1860 1870 1880 1890 1900 1910 1920 1930 1940 1950 1960 1970 1980 1990 2000 2010<br><!-- End of picture text --> Note: This Figure shows the ratio between the number of mentions of keywords related with poverty and inequality, and the total number of words spoken on the presidential speeches of each decade. See Appendix A for more details about the data.

Using this alternative measure, it becomes clear that the increase in the prevalence of poverty and inequality was not driven by lengthier speeches. The proportion of each speech that was devoted to these subjects increased prominently in recent decades. While in the decade of the 1900s references to poverty and inequality accounted for 0.01% and 0.02% of the total words in the speeches, by the 2010s these figures had increased by a factor of 17 and 4, respectively.

This trend is also visible—albeit at a lesser degree— when we examine other terms related to poverty and inequality that one would expect to hear when these subjects are discussed (see Esser and Williams, 2013). In Figure 5 we show the evolution of three keywords related with poverty (“indigence,” “middle class,” and “vulnerable”) and three keywords related with inequality (“equitable,” “rich,” and “equality of opportunities”). The terms related to poverty increase in usage around the same time as the “political enlightenment,” supporting the robustness of our previous findings. Although “vulnerable,” “indigence,” and “middle class” are quite unpopular terms until the second half of the 20<sup>th</sup> 8
century, their prevalence begins to increase visibly after the 1970s. The evolution of the keywords related to inequality also supports our previous results. Despite a rather erratic evolution of the terms “equitable” and “rich,” mentions of “equality of opportunities” increase abruptly in usage after the 1970s.

**Figure 5. Prevalence of keywords related with poverty and inequality**

_(% of speeches that contain each keyword by decade)_

- (a) Keywords related with poverty (b) Keywords related with inequality

<!-- Start of picture text --> 100 100<br>75 75<br>Equality of<br>Middle Class opportunities<br>50 50<br>Vulnerable Rich<br>Equitable<br>25 25<br>Indigence<br>0 0<br>% of speeches % of speeches<br>1830 1850 1870 1890 1910 1930 1950 1970 1990 2010 1830 1850 1870 1890 1910 1930 1950 1970 1990 2010<br><!-- End of picture text --> Note: This Figure shows the percentage of presidential speeches on each decade that contained at least once the words “poor,” “vulnerable,” “middle class,” “equity,” “equality” and “inequity,” and were calculated pooling the presidential speeches of 10 Latin American countries. See Appendix A for more details about the data.

While in this section we assessed the robustness of the political enlightenment to different thresholds in the prevalence of the keywords, alternative measures of the variable of interest, and prevalence of related keywords, in the following section we address a set of potential concerns about our findings. First, we assess whether the observed changes in the prevalence of the keywords are statistically significant. Second, we examine if the evolution was not due increased prevalence, but rather reflects a different way of talking about the same issues. Finally, we assess whether the enlightenment is spurious, by comparing the evolution of other non-related keywords.

# **3.2 STATISTICAL SIGNIFICANCE OF THE ENLIGHTENMENT**

The first potential concern we address is that our results may not be statistically significant. To empirically assess the evolution of the keywords’ frequency over time, we run ordinary least squares (OLS) regressions. In the baseline specification, we assume that keyword prevalence can be characterized according to the following equation: 9
where the outcome variable, ���, measures the prevalence of the keywords of interest in the speech of country � in year �. We include a linear time trend �, and country fixed effects. We are interested in the sign of ��, which captures the time trend of each keyword.

We measure the dependent variable in two ways: as a dummy variable indicating if the keyword was mentioned in the speech or not, and as the total number of mentions of the keyword relative to the total number of words in that speech. In Table 1 we assess the evolution of poverty and inequality using a narrow definition (using the keywords previously listed), and a broader definition (which, in addition to the previous keywords, in the case of the topic of poverty includes “impoverishment”, and in the case of inequality includes “access, disparities, disparity, distribution, distributive, exclusion, inclusion, equitable, income distribution, and redistribution”).

**Table 1. OLS regressions of keywords prevalence at the year level**

_a) Dependent variable: Dummy on whether the keyword was mentioned or not_

||Pov<br>|erty<br>|Ineq<br>|uality<br>|
|---|---|---|---|---|
||Narrow|Broad|Narrow|Broad|
||(1)|(2)|(3)|(4)|
|Year|0.005***|0.005***|0.003***|0.003***|
||(0.000)|(0.000)|(0.000)|(0.000)|
|Constant|-10.061***|-10.001***|-5.963***|-5.094***|
||(0.489)|(0.493)|(0.693)|(0.602)|
|Country FE|||||
|Observations|888|888|815|815|
|Adj. R-squared|0.337|0.335|0.164|0.215|

_b) Dependent variable: Keyword as percentage of total words in speech_

||Pov<br>|erty<br>|Ineq<br>|uality<br>|
|---|---|---|---|---|
||Narrow|Broad|Narrow|Broad|
||(1)|(2)|(3)|(4)|
|Year|0.000***|0.000***|0.000***|0.000***|
||(0.000)|(0.000)|(0.000)|(0.000)|
|Constant|-0.025***|-0.025***|-0.007***|-0.024***|
||(0.002)|(0.002)|(0.001)|(0.002)|
|Country FE|||||
|Observations|888|888|888|888|
|Adj. R-squared|0.337|0.339|0.191|0.308|

Notes: This table presents estimates of the correlation between the prevalence of poverty and inequality over time. ***, ** and * denote significance at 10%, 5% and 1% levels, respectively. Heteroskedasticity-robust standard errors in parentheses. See Appendix A for more details about the data.

10
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was thought of as having both a standard of living dimension as well as a moral one. Throughout the 19<sup>th</sup> and early 20<sup>th</sup> centuries the concept of poor in Latin America was a highly hierarchical one, distinguishing between the “deserving poor” and the “undeserving” one. The undeserving poor were referred to as lazy and constituted the bottom of the scale. The undeserving poor were to be punished while the deserving ones were to be the subject of charitable attention. In practice, however, the distinction between deserving and undeserving poor did not necessarily have much practical implications. The same applies to the linguistic uses. A beggar, for example, could refer to a deserving or undeserving poor.

For our purposes, what this means is that we need to cast the net wide and cover a broad range of terms associated with the discussion of poverty topics in a broad sense. Not all terms have the exact meaning and many have very specific connotations in the way they were used. In addition to poverty, which was always a term found in the literature, it was common for the issue to be discussed as “misery,” “indigence,” “beggar,” “shameful,” “pauper,” “hunger,” and “charity” ( _caridad, beneficiencia)_ , which were all terms often used when the issue of poverty was discussed in the late 19<sup>th</sup> century and early 20<sup>th</sup> century.

In Figure 7 we examine how the prevalence of synonyms and keywords related to poverty and inequality has evolved over time.

# **Figure 7. Prevalence of synonyms related with poverty and inequality**

_(% of speeches that contain each keyword by decade)_

- _a. Related with poverty_

<!-- Start of picture text --> 100<br>75<br>Indigence<br>Hunger Beggar<br>Charity Misery<br>50<br>Shameful<br>25<br>0<br>%<br>1830 1840 1850 1860 1870 1880 1890 1900 1910 1920 1930 1940 1950 1960 1970 1980 1990 2000 2010<br><!-- End of picture text --> 12
# _b. Related with inequality_

<!-- Start of picture text --> 100<br>Redistribution Distribution<br>Social justice<br>75<br>Income<br>distribution<br>50<br>25<br>Social inclusion<br>0<br>%<br>1830 1840 1850 1860 1870 1880 1890 1900 1910 1920 1930 1940 1950 1960 1970 1980 1990 2000 2010<br><!-- End of picture text --> Note: This Figure shows the percentage of presidential speeches on each decade that contained at least once each of the keywords and were calculated pooling the presidential speeches of 10 Latin American countries. See Appendix A for more details about the data.

If only the way poverty and inequality are discussed has changed, then, as the forms of expression shift, one would expect to observe a decline in the prevalence of previously used synonyms that coincides roughly with the “political enlightenment.” This, however, is not what we observe. For the topic of poverty, synonyms and related terms, such as hunger and indigence do not decline in prevalence during the enlightenment decades. In fact, indigence becomes a more frequent term, referenced in 2% of speeches from the 1960s and 18% of the speeches from the 2010s. Hunger evolves rather erratically, but there is no obvious decline in usage. Moreover, the fact that all the terms are infrequent (mentioned in less than 30% of speeches) further supports the fact that the increase in references to poverty we observe starting in the 1960s constitutes a political enlightenment.

The evolution of terms related to inequality is somewhat more heterogeneous, but it does not indicate that the enlightenment simply reflected a change in the words used to discuss the subject. This is particularly true considering the frequency of many of these terms _increased_ during the enlightenment period. For example, despite a marked decline in the usage of “social justice,” “redistribution,” and “distribution” beginning in the 1980s, these terms also increased in frequency during the two preceding decades (1960-1980), the period during which the early stage of the political enlightenment took place. In sum, the evolution of terms related to poverty and inequality does not support the view that the enlightenment reflected a change in the language used to discuss poverty and inequality, instead of an increasing awareness about these issues.

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# **3.4. IS THE POVERTY ENLIGHTENMENT JUST A SPURIOUS CORRELATION?**

A final concern regarding the poverty enlightenment is that the rise in mentions may have been mere coincidence; it could have been driven by a generalized increase in the usage of many other words besides those related to poverty and inequality. We provide evidence to discard this possibility by examining the evolution of terms belonging to two miscellaneous thematic categories. The first one is related with ideals (such as justice, freedom, and prosperity), while the second one related with war, military and the church. These evolutions are presented in Figure 8.

## **Figure 8. Prevalence of miscellaneous terms in presidential speeches**

_(% of speeches that contain each keyword by decade)_ (a) Justice, freedom, security, trust, prosperity (b) War, military, church <!-- Start of picture text --> 100 100<br>75 75 War<br>Trust<br>50 50 Military<br>Justice Security<br>25 Freedom Prosperity 25<br>Church<br>0 0<br>1830 1850 1870 1890 1910 1930 1950 1970 1990 2010 1830 1850 1870 1890 1910 1930 1950 1970 1990 2010<br><!-- End of picture text --> Note: This Figure shows the percentage of presidential speeches on each decade that contained at least once each of the keywords and were calculated pooling the presidential speeches of 10 Latin American countries. See Appendix A for more details about the data.

As an indication that the enlightenment was no coincidence driven by a generalized increase in word usage, we observe that the mentions of ideals such as justice, freedom, or prosperity did not increase during the enlightenment periods. For example, while references to poverty and inequality began to surge in the 1960s, the word prosperity saw its most pronounced decline during this period. A clear difference in trends is also apparent for the terms justice, freedom, trust and security, which, unlike poverty and inequality, have been highly referenced terms since the 1830s, and have not seen any marked increases since the 1960s. The contrast in trends is even greater for war, military, and church, terms which all decline in frequency of usage starting roughly around the 1950s. Considering the poverty and inequality political enlightenment is not matched by a similar enlightenment for other terms, we can conclude that the enlightenment does not seem to have been driven by a generalized increase in the use of other words.

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# **4. The increase in socially-oriented policy concerns**

Thus far we have focused our analysis on the discussion of poverty and inequality. But perhaps, the enlightenment we have documented regarding these two topics is part of a broader shift towards greater socially-oriented policy concerns on the governments’ side. In this section, we seek to address the following question: Is the poverty and inequality political enlightenment part of a broader shift towards an increased concern for social policy? As a first step in examining this question, in Figure 9 we explore how references to some social issues selected ad-hoc have evolved over time.

## **Figure 9. Evidence of increasing socially-oriented policy concerns**

_(% of speeches that contain each word by decade)_

## (a) Long-standing social issues

## (b) Emerging social issues

<!-- Start of picture text --> 100 100<br>Development<br>75 Education 75 Drugs<br>Global Terrorism<br>50 Violence 50 warming<br>Crime<br>25 25<br>Health Democracy Illegal<br>0 0<br>(c) Household (d) Labor market<br>100 100<br>Work<br>75 75<br>Growth<br>Family<br>50 50<br>Jobs<br>Women<br>25 25<br>Elderly<br>0 0 Unemployment<br>1830 1850 1870 1890 1910 1930 1950 1970 1990 2010 1830 1850 1870 1890 1910 1930 1950 1970 1990 2010<br>1830 1850 1870 1890 1910 1930 1950 1970 1990 2010 1830 1850 1870 1890 1910 1930 1950 1970 1990 2010<br><!-- End of picture text --> Note: This Figure shows the percentage of presidential speeches on each decade that contained at least once each of the keywords and were calculated pooling the presidential speeches of 10 Latin American countries. See Appendix A for more details about the data.

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Figure 9 provides some suggestive evidence of an increase in socially-oriented policy concerns. We divide the terms into four categories based on their historical occurrence: (a) Long-standing social issues, such as development, education and violence (with a high frequency since the beginning of the 20<sup>th</sup> century); (b) Emerging social issues that have become more prevalent relatively recently, such as global warming, and terrorism; (c) Household-related terms which include family, elderly and women; and (d) Keywords related to the labor market, such as work, jobs and unemployment. Figure 9 plots the evolution of the terms in each category.

One can readily observe that the frequency with which social issues are referenced has increased over time for virtually every category. This is clearly the case for the longstanding social issues, which began to increase in frequency in the 1830s. By the 1980s all the terms had reached a very high speech prevalence, with over 80% of speeches in the respective decades mentioning the term. A similar story holds for terms related to the household. The prevalence of the terms “family” and “women” rose continuously since the earlier periods, and reached its highest levels during the 2010s. The prevalence of the keyword elderly began to rise around 1910, but the highest levels were, once again, between 1970 and 2010.

The evolution of terms related to the labor market also offers suggestive evidence of a shift towards greater concern for social issues. Although “work” had become frequently referenced by 1880, “jobs” and “growth” began to rise steadily after the 1870s, with the most pronounced increases taking place between 1950 and 1990—roughly during the first phase of the political enlightenment. Furthermore, during this same period, “unemployment,” an extremely uncommon term before 1950, rose in frequency at an astonishing pace, jumping from a speech prevalence of 9.6% in the 1950s to a prevalence of 65.5% by the 1990s. Finally, all the emerging social issues—“crime,” “terrorism,” “drugs,” “illegal”— experienced pronounced increases in prevalence beginning in the 1950s and 1960s, with the exception of “global warming,” which only became more frequent at the turn of the 20<sup>th</sup> century.

The fact that the terms we have explored belong to an overarching category of social wellbeing, combined with the fact that they have all become increasingly prevalent over time, seems to suggest that the poverty and inequality political enlightenment may have been part of a broader shift of policy priorities towards more socially-oriented issues.

Admittedly, these results are based on the arbitrary choice of keywords analyzed above. In order to further explore whether the poverty and inequality political enlightenment was part of a broader manifestation of increased concerns for social issues, we rely on Latent Dirichlet Allocation (LDA), a type of topic model algorithm that endogenously “discovers” the main topics that occur in a collection of documents.<sup>4</sup> We discuss the technical details of the implementation of LDA in the Appendix C.

> 4 For a more detailed description of LDA see Blei et al (2003).

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# **4.1 EVIDENCE USING TOPIC MODELS**

If a shift towards greater concern for socially-oriented policies took place, then one might expect to see this change reflected in the topics discussed in the presidential speeches. To analyze the relative importance of the different topics over time, we rely on LDA, a type of topic model algorithm that detects the main topics and their relative importance in a collection of documents. Following the criteria of perplexity minimization,<sup>5</sup> we find 23 to be the optimal number of topics. Jointly with the content of the 23 topics extracted from all the speeches, for each speech, LDA produces the probability that each of the topics belongs to the speech, which can we interpret as the proportion of a speech discussing each topic. To plot the evolution of topic prevalence over time, we pool speeches by decade and compute the average topic probabilities of all speeches in each decade.<sup>6</sup> Finally, we label the topics based on the top ten most probable words in each topic. The results are plotted in Figure 10, and the vectors of terms defining each topic are listed in Table 2.

**Figure 10. The increasing relevance of social development in presidential speeches** _(Average topic probability of speeches in each decade)_

<!-- Start of picture text --> 100%<br>Rest of the topics<br>75%<br>Infrastructure<br>and public<br>50% services Education<br>and health<br>Public administration<br>and services<br>25%<br>War and<br>Social<br>patriotism Rights and freedom<br>development<br>0%<br>1810 1830 1850 1870 1890 1910 1930 1950 1970 1990 2010<br>Average topic proportion<br><!-- End of picture text --> Note: This Figure shows the topic probabilities estimated with LDA. We pooled speeches by decade and computed the average topic probabilities of speeches in that decade. The topic probabilities can be thought of as representing the proportion of each document that belongs to each topic. Only topics whose average document probability exceeds 10% in at least one decade are presented, the rest are grouped as a residual.

> 5 The perplexity minimization is used to find the optimal number topics in all the speeches. See Appendix C for more details about this methodology.

> 6 This is a similar approach to Griffiths and Steyvers (2004) who average the topic probabilities over all documents from the same year.

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**Table 2. Top probability terms defining each topic** _(In descending order of probability of term within the topic)_

|**"War and**<br>**patriotism”**|**“Public**<br>**administration**<br>**and services”**|**“Infrastructure,**<br>**public services”**|**“Social**<br>**development”**|**"Education**<br>**and health**|**"Rights**<br>**and**<br>**freedom"**|
|---|---|---|---|---|---|
|countries<br>peace<br>war|public<br>administration<br>service|public works<br>production<br>construction|development<br>national<br>social|Education<br>Health<br>Family|the people<br>politics<br>social|
|homeland<br>army<br>national|construction<br>national<br>executive|services<br>education<br>service|program<br>sector<br>policy|Poverty<br>Program<br>Security|life<br>freedom<br>right|
|nation|right|social|system|Social|nation|
|freedom<br>authority|interests<br>order|plan<br>labor|process<br>resources|Investment<br>Right|homeland<br>national|
|honor|relations|activities|growth|Reform|world|

Note: This table shows the words that have the highest probability of belonging to each topic. Because LDA defines topics as distributions over words, the lists of terms define the subject of each topic.

The topics and their evolutions shown in Figure 10 clearly suggest that a shift towards greater concern for socially-oriented policy issues indeed took place. Throughout the 19<sup>th</sup> century, presidential speeches were largely concerned with two topics: war and patriotism on the one hand, and the state of the public administration and public services on the other. The prevalence of a topic concerned with war and patriotism is consistent with the historical context of the period, which was characterized by repeated border wars between the newborn nation-states of South America. The high prevalence of a topic concerned with the state of the public administration and with the provision of public services is also to be expected given that the governments and their institutions were still in their infancy, making the development of state capacity a central policy concern. These two topics combined accounted for roughly 70% of presidential speech content until the 1870s.

Nevertheless, discussions of war and patriotism dwindled in significance after the 1870s, and although the topic related to the state of the public administration and public services continued to dominate well into the 20<sup>th</sup> century, beginning in the 1900s, presidents increasingly shifted their rhetoric towards a new topic concerned with the development of infrastructure and the provision of public services, such as education. These two policy concerns were particularly dominant between 1920 and 1950, with the topic reaching its peak in speech prevalence in the 1940s. Around the same time, presidents increasingly began to speak about a broad topic related to rights and freedom, particularly throughout the 1950-1980 period.

Finally, beginning in the 1950s, two topics explicitly concerned with social development began to emerge at an unprecedented pace, providing further evidence that the poverty and inequality enlightenment we have documented earlier was part of a broader rise in sociallyoriented policy concerns. Moreover, our results not only suggest that social development 18
became an increasingly central subject in the presidential speeches of the last 60 years, but they also indicate that the framework and rhetoric used to discuss the subject evolved over time. This second point is illustrated by LDA’s discovery of two separate and qualitatively distinct “sub-topics” related to social development—namely the “social development” topic and the “education and health” topic. As the top terms defining the “social development” topic suggest, between 1960 and 1990, social development was generally framed as a systemic process related to different economic sectors, economic growth and resources. To illustrate, an excerpt from Mexico’s 1983 presidential speech, one which had a particularly high probability of belonging to the “social development” topic, reads as follows: “ _We have presented and initiated actions to induce qualitative changes to the economic structure, to revise attitudes and update styles in order to improve the orientation and quality of development, and to transform it into a steady and sustained process._ ” But although presidents have continued to discuss social development in this context, the emergence of the “education and health” topic suggests, that since the 1990s, a new framework for discussing this issue has emerged. As the top topic terms illustrate, this new development discourse is more concrete, and explicitly focused on the development of education and health. Furthermore, the appearance of the terms “right” and “investment” suggests an increasing recognition that access to these public services constitutes a basic right that requires government investment. Indeed, the fact that “reform” is another top term suggests that this new development discourse called for substantive structural changes to public education and health systems. These ideas are well captured in the following excerpt from Chile’s 2012 speech, to which LDA assigned a high probability of belonging to this topic: “ _Education is the key engine of development and social mobility. It is the mechanism needed for the talent and merit to emerge. It is the great instrument for the construction of a country of opportunities. For this reason, the battle for development and against poverty will be won or lost in the classrooms.”_ Returning to the original purpose of our topic modeling exploration, the fact that LDA endogenously discovered two semantically meaningful and distinct topics related to social development, and that the prevalence of these topics increased visibly in the period between the 1960s and 2010s, suggests that the poverty and inequality political enlightenment was part of a broader increase in socially-oriented policy concerns. The close resemblance between these two phenomena, both in terms of their timing and the sharpness of the increase in prevalence they experienced, certainly supports this notion.

A possible concern is whether this same result holds if we vary the number of topics used as input for the LDA. In the Appendix Figure B3 we show that indeed, our finding is robust to using different numbers of topics in the implementation of LDA, particularly 5, 15 and 40 topics. Another potential shortcoming relates to the way in which LDA operates with time series data. LDA is a static model in the sense that the vocabulary is assumed to be fixed, with no significant changes in language that might affect topic discovery and assignment. Furthermore, LDA also fails to account for time as a variable that could affect 19
topical content and topic assignment (Blei and Lafferty, 2006).<sup>7</sup> As a simple check of whether not accounting for time biases our results, we follow Kim and Oh (2011) in dividing our sample into different time periods and performing LDA on each period separately. This allows LDA to discover the topics that dominated each period using only the words observed in that period, instead of the words found in the entire vocabulary of the 200 years of speeches. We divide our sample into four periods (with a similar number of observations per period): 1819-1900, 1901-1950, 1951-2000 and 2001-2016 and extract two topics for each period (a fourth of the topics extracted for the full sample).<sup>8</sup> We find consistent results with the previous analysis.

# **5. The context of poverty and inequality over time**

Our first observation that references to poverty and inequality increased dramatically after the 1960s, combined with our second observation that presidents began to devote larger shares of their speeches to the subject of social development around the same period, prompts a third question: In addition to speaking more about poverty and inequality, did presidents also begin to discuss these issues differently from before? If so, did this change reflect the broader increase in socially-focused policy concerns?

To analyze the context of poverty and inequality over time we follow a Key Words in Context (KWIC) approach in combination with LDA. KWIC involves detecting all appearances of the keywords of interest and extracting the terms appearing immediately before and after each keyword. These surrounding terms represent what we call “the context.” The keywords we examine are the same terms used in the analysis of word frequencies in Section 3. To focus our attention only on references to poverty and inequality, we extract every 80-word excerpt surrounding the keywords (roughly, the paragraph where the keyword is included), and aggregate all the excerpts by subject to produce two collections of excerpts—one about inequality and the other about poverty.<sup>9</sup> As in the previous implementation of LDA, we follow a criteria of perplexity minimization to choose the number of topics. This time the perplexity indicator flattens out past the 21-topics mark—indicating little improvement in the model if the number of topics is increased past this number—therefore we choose to implement LDA with 21 topics.

> 7 A number of extensions of LDA that account for time— either in the modeling process, or after it—have been introduced, including the “Dynamic Topic Model” (Blei and Lafferty, 2006), “Topics over Time” (McCallum and Wang, 2006) or “Topic Chains” (Kim and Oh, 2011), which divides the collection of documents into time periods.

> 8 The results are available upon request.

> 9 The samples are now considerably smaller than our full collection of speeches: 492 speeches with excerpts about poverty and 522 speeches with excerpts about inequality. Observations in each sample are quite unevenly distributed over time, with very few observations in the 1800s. This imbalance across time is present because poverty and inequality were discussed less frequently before the 1960s, and due to a lower availability of speeches in the earlier years.

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Lastly, because the excerpts are considerably shorter than the full speeches, instead of interpreting the topic probabilities as the share of each excerpt devoted to each topic, we assign each excerpt to the topic with the highest probability and then examine the percentage of excerpts belonging to each topic in each decade. In other words, although it makes sense to look at how the topics are distributed in a large document, such as a presidential speech, we believe that in the case of these shorter excerpts, it is more informative to simply classify each excerpt as belonging to one topic—the topic that LDA assigns the highest probability to. Figure 11 shows how the context of discussion related to poverty has evolved over time.<sup>10</sup> Table 3 shows the composition of each topic.

**Figure 11. The context of poverty references over time**

_(% of excerpts belonging to each topic by decade)_ <!-- Start of picture text --> 100%<br>Rest of<br>the topics<br>Government resources and<br>75% expenditures<br>50%<br>International<br>comparisons<br>Schooling<br>25%<br>Social<br>development<br>0%<br>1850 1870 1890 1910 1930 1950 1970 1990 2010<br>Average topic proportion<br><!-- End of picture text --> Note: This Figure shows the percentage of speech excerpts belonging to each topic during each decade. Excerpts are classified as belonging to the topic with the highest topic probability. We pool excerpts by decade and compute the percentage of speeches belonging to each topic in each decade.

Figure 11 suggests that the context in which poverty was discussed visibly changed towards a more programmatic discourse emphasizing government programs that address different dimensions of poverty. Initially, until the 1940s, discussions of poverty were framed around a mixture of two overarching topics: government resources and expenditures on the one hand, and schooling on the other. The subject of schooling was

> 10 To avoid unnecessary clutter, we only show topics whose average document probability exceeds 10% in at least one decade, the rest of the topics are grouped as a residual.

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particularly dominant, indicating that already in these early periods, education was believed to be an important factor affecting poverty. Towards the 1940s, however, the way poverty was discussed began to change. As the “international comparisons” topic illustrates, it began to be increasingly framed in an international context, one that compared developed and under-developed nations, and one where poverty was seen as being affected not only by domestic conditions, but by external factors such as the broader international system.

**Table 3. Top probability terms defining the context of Poverty** _(In descending order of probability of term within the topic)_

|**“Government resources and**<br>**expenditures”**|**“Schooling”**|**“International**<br>**comparisons”**|**"Social**<br>**development"**|
|---|---|---|---|
|life|schools|countries|social|
|tax|national|the people|program|
|needs<br>expenses|executive<br>schooling|national<br>world|family<br>development|
|the people|school|problems|health|
|needs|federal|production|national|
|construction|amount|interests|education|
|economic|secretariat|wealth|resources|
|resources|students|international|children|
|wellbeing|service|economic|growth|

Note: This table shows the words that have the highest probability of belonging to each topic. Because LDA defines topics as distributions over words, the lists of terms define the subject of each topic.

The most abrupt and interesting shift in the framework in which poverty was discussed did not begin to take place until after the 1960s. Similar to the pronounced rise in the number of references to poverty we documented earlier, between 1960 and 2016, presidential speeches quickly began to speak about poverty within a more programmatic framework related to different dimensions of development, such as education and health. To illustrate the programmatic and development-focused nature of this new rhetoric, an excerpt from Peru’s 2012 speech, which had a particularly high probability of belonging to this topic, reads as follows: “ _On the one hand we have the poverty alleviation programs, which allow access to public services and development programs, and on the other hand we have programs related to access to opportunities and sustained strategies of income generation, food security and productive employment_ .” It is apparent that a clear rhetorical shift took place. First, a quick glance at the words that define the topic indicates that this new topic, unlike most of the previous topics, focuses exclusively on social development. Second and more importantly, however, comparing the “schooling” topic that dominated until the 1940s, to the new “social development” topic, it 22
becomes clear that poverty went from being discussed in a narrow context that failed to explicitly consider other dimensions of development besides education, to a new context where poverty was framed around multiple dimensions. Furthermore, the recent emergence of many other smaller “residual” topics related to areas such as housing or nutrition, suggests that the discourse used to discuss poverty has become more varied in recent years.

An equally significant and qualitatively similar rhetorical shift took place in the discussion of inequality. Results are shown in Figure 12 and Table 4.

**Figure 12. The context of inequality references over time**

_(% of excerpts belonging to each topic by decade)_ <!-- Start of picture text --> 100%<br>Rest of the topics<br>75% International<br>comparisons<br>50%<br>Public administration<br>War and<br>Social<br>25% military<br>justice<br>Equality of<br>opportunities<br>0%<br>1830 1850 1870 1890 1910 1930 1950 1970 1990 2010<br>Average topic proportion<br><!-- End of picture text --> Note: This Figure shows the percentage of speech excerpts belonging to each topic during each decade. Excerpts are classified as belonging to the topic with the highest topic probability. We pool excerpts by decade and compute the percentage of speeches belonging to each topic in each decade.

Figure 12 above suggests that between 1819 and 1880 one of the prevailing contexts of discussion was related to war and the military. Once again, this seems consistent with the turbulent historical context of that period. After 1880, discussing inequality in the context of war became far less common, and instead, presidents began to mention the issue in a broader and somewhat miscellaneous context of public administration. This topic dominated until the 1940s, when it was gradually replaced by three new topics that emerged in a semi-sequential manner. The first of these—the “international comparisons” topic— was one that made isolated appearances in the 1830s and 1910s, but which was not particularly prevalent until the 1950-1980 period. The discourse found in this topic was characterized by a more international outlook, comparing countries to each other and calling for equality and cooperation between the world’s nations. The second context of 23
discussion of inequality that emerged in this period was one concerned with social justice. As the top-probability terms defining the “social justice” topic suggest, the rhetoric found in these discussions of inequality was related to bringing justice to the working classes by making the system more equitable.

**Table 4. Top probability terms defining the context of Inequality** _(In descending order of probability of term within the topic)_

|**“War and**<br>**military”**|**“Public administration”**|<sup>**“International**</sup><br>**comparisons”**|**"Opportunities"**|**"Social justice"**|
|---|---|---|---|---|
|right|executive|international|social|life|
|national|construction|policy|education|justice|
|war|situation|nations|development|production|
|united|relations|countries|opportunities|economic|
|homeland|public|right|national|the people|
|classes|commission|peace|growth|system|
|duty|interests|relations|poverty|workers|
|guarantees|spirit|respect|health|national|
|cause|services|cooperation|society|social|
|military|labor|organizations|policy|economic|

Note: This table shows the words that have the highest probability of belonging to each topic. Because LDA defines topics as distributions over words, the lists of terms define the subject of each topic.

Lastly, in the 1960s the most pronounced and interesting change in the framework used to discuss inequality began to take place. “Opportunities” quickly became the central framework used to discuss inequality. The pace at which this new framework was adopted is unprecedented when compared to the evolution of any other topic we have presented thus far. In the 1960s, only 6% of speech excerpts discussed inequality in a context of opportunities. By the 2000s, 72% of speeches used this new framework to speak about the issue. To illustrate this new emphasis on ensuring equality of opportunities particularly in the area of education, we quote an excerpt from Chile’s 1995 speech, to which LDA assigned the highest probability of belonging to the “opportunities” topic: _“[the low investment in education] led to a progressive deterioration of the quality of education, and as a consequence, the inequity of the educational system increased. Because, how much does a middle-class family spend monthly on her children’s education? Sixty thousand pesos, on average. And how much does the State spend monthly on each student in the public system? Eleven thousand pesos. This is the gap that we must reduce if we truly want education to offer equality of opportunities to the Chilean youth.”_ As a robustness check of these results, we use an alternative, simplified method to extract the context. We identify the most frequent terms in each collection of excerpts on which we performed LDA. This provides a general sense of the context in which poverty 24
and inequality were mainly discussed in each period. The main results are shown in Appendix Table B4. This alternative method confirms the results obtained through LDA: the top frequent words used in the contextual excerpts of poverty and inequality closely match the terms that define the topics of each period.

This section set out to examine the frameworks in which poverty and inequality have been discussed over time, and whether increasing socially-oriented policy concerns can also be observed in the context of discussion. By performing LDA on the excerpts in which poverty and inequality are discussed, we identified a clear shift in the rhetoric presidents used when discussing these subjects. Specifically, the topics extracted by LDA indicate that beginning in the second half of the 20<sup>th</sup> century, presidents began to discuss poverty and inequality in a clear context of social development, a context that was not clearly visible in earlier periods.

# **6. Deeds and words**

A final question of interest is whether the extent to which poverty and inequality are discussed in presidential speeches is correlated with policy outcome variables. Particularly, we analyze the correlation between keyword prevalence and social public spending, as well as the levels of poverty and inequality of the countries. If the frequency of references to these topics is assumed to reflect the degree of concern and prioritization on the government’s side, perhaps, countries where these subjects receive greater attention have higher levels of social public spending, lower levels of poverty and inequality, or have made greater progress in their reduction. Conversely, greater attention by the government could be the consequence of enduring poverty and inequality, in which case, countries where these subjects receive greater attention may in fact be poorer and more unequal. The goal of this section, therefore, is to ascertain what the relationship, if any, might be.

To assess the relationship between prevalence of poverty and inequality in speeches on the one hand, and evolution of objective indicators on the other hand, we focus on the 2000s, a period in which the prevalence of both keywords was the highest. We get social public spending from ECLAC, and poverty and inequality data from SEDLAC (see Appendix A for more details about the data). Social public spending is calculated based on the expenditures of the central government, and is measured as percentage of the total government expenditure. The poverty rate is defined as the proportion of individuals with a per capita household income lower than $4 per person per day in 2005 purchasing parity power (PPP), while we use the Gini coefficient to measure income inequality.<sup>11</sup> We begin to explore a possible relationship by examining the levels of social spending and how such levels evolved over time. For each country, we calculate the social public

> 11 The Gini coefficient takes values between zero and one: a value equal to zero means perfect equality, while a Gini coefficient equal to one means complete inequality.

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spending for 2000-2013, using all years for which data are available, as well as the change in the social spending between 2000 and 2013. Since virtually all speeches from the 2000s discuss poverty and inequality, as measure of prevalence of these keywords in presidential speeches we use relative frequencies. The relative frequencies are computed by dividing the number of times the keywords related to poverty and inequality are mentioned (using the broad definition of each topic), by the total number of words spoken in the speeches. This ratio shows how intensely presidents discussed poverty and inequality in their speeches. Figure 13 shows the correlation between social spending and keyword prevalence.

# **Figure 13. Correlation between public social spending and keyword prevalence in presidential speeches, 2000-2013**

<!-- Start of picture text --> (a) Social spending and poverty prevalence (b) Social spending and inequality prevalence<br>Correlation = -0.54 Correlation = -0.60<br>0.5 0.15<br>0.4<br>0.1<br>0.3<br>0.2<br>0.05<br>0.1<br>0.0 0<br>0 10 20 30 40 50 0 10 20 30 40 50<br>Social spending (% Gov, average 2000-13) Social spending (% Gov, average 2000-13)<br>(c) Δ Social spending and poverty prevalence (d) Δ Social spending and inequality prevalence<br>Correlation = 0.25 Correlation = 0.36<br>50% 20%<br>40%<br>30%<br>10%<br>20%<br>10%<br>0% 0%<br>-1 0 1 2 3 -1 0 1 2 3<br>Social spending (% Gov, change 2000-13) Social spending (% Gov, change 2000-13)<br>Keywords as % of all words Keywords as % of all words<br>Keywords as % of all words Keywords as % of all words<br><!-- End of picture text --> Note: This Figure shows the cross-country correlation between measures of social spending and the keyword prevalence of poverty and inequality in presidential speeches during the 2000-2013 period. Panels (a) and (b) correlate the average level of social spending (as a percent of total public expenditure) with the prevalence of poverty and inequality, respectively, while panels (c) and (d) correlate the increase in the level of social spending with the prevalence of poverty and inequality. See Appendix A for more details about the data.

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The correlation between the average social public spending and the prevalence of poverty and inequality in presidential speeches is in both cases negative. The correlation coefficients are -0.60 for poverty (p < 0.01) and -0.54 for inequality (p < 0.05). This means countries with relatively lower levels of social public spending discuss poverty and inequality more frequently in their speeches. We also find that these countries had higher increases in social spending during the 2000s. The correlation coefficients are 0.25 for poverty and 0.36 for inequality but are not statistically different from zero at the usual levels of significance. Next, we analyze whether prevalence of keywords in speeches correlates with objective measures of poverty and inequality. Results are shown in Figure 14.<sup>12</sup>

**Figure 14. Correlation between poverty and inequality and keyword prevalence in presidential speeches, 2000-2013**

<!-- Start of picture text --> (a) Poverty rate and poverty prevalence (b) Gini coefficient and inequality prevalence<br>Correlation = 0.61 Correlation = 0.07<br>0.5 0.5<br>0.4 0.4<br>0.3 0.3<br>0.2 0.2<br>0.1 0.1<br>0.0 0.0<br>10 20 30 40 50 0.40 0.45 0.50 0.55 0.60<br>Poverty rate (average 2000-15) Gini coefficient (average 2000-15)<br>(c) Δ Poverty rate and poverty prevalence (d) Δ Gini coefficient and inequality prevalence<br>Correlation = -0.55 Correlation = -0.50<br>0.5 0.5<br>0.4 0.4<br>0.3 0.3<br>0.2 0.2<br>0.1 0.1<br>0.0 0.0<br>-3 -2 -1 0 -0.01 -0.01 0.00 0.01 0.01<br>Poverty rate (change 2000-15) Gini coefficient (change 2000-15)<br>Keywords as % of all words Keywords as % of all words<br>Keywords as % of all words Keywords as % of all words<br><!-- End of picture text --> Note: This Figure shows the cross-country correlation between poverty and inequality and the prevalence of poverty and inequality in presidential speeches during the 2000-2013 period. Panels (a) and (b) correlate the

> 12 The República Bolivariana de Venezuela is excluded from the analysis due lack of data availability.

27
average level of poverty and Gini with the prevalence of poverty and inequality, respectively, while panels (c) and (d) correlate the decreases in the poverty rate and Gini coefficient with the prevalence of poverty and inequality. See Appendix A for more details about the data.

Figure 14 plots the relationship between average poverty and inequality and relative frequency of usage of poverty and inequality in presidential speeches. For each country, we calculate the average poverty rate and Gini coefficient for the period 2000-2015, using all years for which data are available.<sup>13</sup> The correlation between prevalence of speeches and the average levels of poverty and inequality is positive in both cases, although rather weak in the case of inequality. The correlation coefficients are 0.61 for poverty (p<0.05) and 0.07 for inequality (not statistically different from zero). This suggest that governments from relatively poorer countries tended to discuss poverty in greater length in their annual speeches than the rest of the countries. In the case of inequality, we do not find such association. Although some countries with relatively low levels of inequality, such as Ecuador or Peru reference inequality frequently in their speeches, others, such as the Chile and Mexico, mention the term less frequently despite having higher levels of inequality.

One could expect part of the weak correlation to be driven by differences in performance in terms of poverty and inequality reduction. Indeed, it could be the case that countries that saw large declines in poverty and inequality reference these terms more frequently. To address the question of whether more frequent references to the subjects are related to larger reductions in poverty and inequality, we calculate the change in the poverty rate and Gini coefficient between 2000 and 2015 (or the nearest comparable estimates). We then plot these changes against our measure of keyword prevalence. The relationship is shown in the panels (c) and (d) of Figure 14.

In this case, the correlation between decreases in poverty and inequality and the keyword prevalence is negative (-0.55 in case of poverty and -0.50 in the case of inequality). This result suggests that countries that were more successful in poverty and inequality reduction, were the ones that discussed these topics the most in the presidential speeches. For example, Colombia, one of the countries that discussed poverty the most, was also one of the countries that made the most progress in reducing it, while Costa Rica, one of the countries that discussed poverty the least, made little progress in reducing it.

In short, we find that, on average, countries with lower social spending tend to discuss poverty and inequality at greater length in their speeches, and that the countries that increased their social spending during the 2000s were the ones that discussed these topics at greater length during the same period. We also find that, on average, relatively poorer countries tend to talk more about poverty, with no relation at all with the levels of inequality. Relatedly, the most successful countries in reducing poverty and inequality were

> 13 For this analysis, we only use years for which we also have data on poverty and inequality indicators.

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the ones that discussed these topics the most. Of course, the causality can go either way. Indeed, there are a large number of cofounding factors behind the content of presidential speeches. A poverty rate that might seem relatively low across the pool of countries, could be high for a country’s citizens, and therefore poverty be a more prevalent topic in the presidential speeches of such country.

# **7. Conclusions**

Using text mining techniques, we document a remarkable rise in the prevalence of “poverty” and “inequality” in the presidential speeches of ten Latin American countries during the last two centuries, what can be thought of as a “poverty and inequality political enlightenment.” This result is robust to increasing the threshold of the frequencies with which the terms must appear in each speech, calculating relative frequencies to account for the possibility of differences in speech length affecting the rates at which each word appears, and analyzing different keywords. Furthermore, the results are corroborated using regression analysis.

Using word frequencies and topic modeling, we also provide suggestive evidence that the “political enlightenment” was part of a broader shift towards increased socially-oriented policy concerns, reflected by the fact that the content of presidential speeches became increasingly focused on social development. Additionally, we document a shift in the context in which poverty and inequality have been discussed. Although poverty was often framed around government, land, schools and infrastructure during the 19<sup>th</sup> century, the context shifted towards public services, and children and schooling during the first half of the 20<sup>th</sup> century. Towards the second half of the 20<sup>th</sup> century, poverty began to be framed around social and economic development. The context in which inequality was discussed also changed over time. Whereas presidents framed inequality within the domain of law, justice and international relations until 1950, in the period 1950-2016, the context of discussion shifted towards “opportunity,” “education,” and, in the 21st century, “poverty.” Finally, we assess whether the extent to which poverty and inequality are discussed in presidential speeches is correlated with policy outcome variables. Particularly, we analyze the correlation between keyword prevalence and social public spending, as well as the levels of poverty and inequality of the countries. We find that, on average, countries with lower social spending tend to discuss poverty and inequality at greater length in their speeches, and that the countries that increased their social spending during the 2000s were the ones that devoted greater attention to these topics during the same period. We also find that, on average, relatively poorer countries tend to talk more about poverty, with no relation at all with the levels of inequality. However, the most successful countries in reducing poverty and inequality were the ones that discussed these topics the most, suggesting political prioritization is an important precondition to reduce poverty and inequality.

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