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Equality, priority and global justiceNils Holtug aa Centre for the Study of Equality and Multiculturalism ,University of Copenhagen , DenmarkPublished online: 09 Dec 2009.
To cite this article: Nils Holtug (2009) Equality, priority and global justice, Journal of Global Ethics,5:3, 173-179, DOI: 10.1080/17449620903403283
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Equality, priority and global justice
Nils Holtug�
Centre for the Study of Equality and Multiculturalism, University of Copenhagen, Denmark
Derek Parfit has argued that prioritarianism “naturally” has global scope, i.e. naturally appliesto everyone, irrespective of his or her particular national, state or other communal affiliation.In that respect, it differs from e.g. egalitarianism. In this article, I critically assess Parfit’sargument. In particular, I argue that it is difficult to draw conclusions about the scope ofprioritarianism simply from an inspection of its structure. I also make some suggestions asto what it would take to argue that prioritarianism has either global or merely domestic scope.
Keywords: prioritarianism; egalitarianism; global justice; cosmopolitanism; Parfit; axiology
1. Introduction
According to Derek Parfit, unlike egalitarianism, prioritarianism ‘naturally’ has global scope.
That is, this distributive principle naturally applies to everyone, irrespective of his or her particu-
lar communal affiliation (such as nationality, citizenship, etc.). More precisely, our prioritarian
concerns extend not only to the people with whom we happen to co-inhabit some territory or
share some language or history, but to everyone alike. In this article, I critically assess
Parfit’s argument. Not because I disagree with the conclusion that prioritarianism has global
scope. In fact, I myself accept this conclusion. However, I also believe that Parfit’s argument
is flawed. Thus, I argue that there are a number of ways in which the scope of prioritarianism
could be coherently restricted and that it is difficult to draw conclusions about the scope of
this view simply from an inspection of its structure.
2. Equality and priority
The versions of egalitarianism and prioritarianism I shall be concerned with are welfare-axiological
ones. That is, they are concerned only with the goodness of outcomes and hold outcome value to
be a function only of welfare.1 More specifically, I define (such welfare-axiological) egalitarianism
and prioritarianism as follows (Holtug 2006, 127–36; 2010, Chs. 7 and 8):
Egalitarianism. An outcome is non-instrumentally better, the more equal a distribution of individualbenefits it includes.
Prioritarianism. An outcome is non-instrumentally better, the larger the sum of weighted individualbenefits it contains, where benefits are weighted such that they gain a greater value, the worse off theindividual is to whom they accrue.
One main difference between these two principles is that egalitarianism is a relational view in a
way that prioritarianism is not. According to egalitarianism, an increase in an individual’s
welfare from n to n þ 1 non-instrumentally improves an outcome if everyone else it at n þ 1,
but not if everyone else is at n. According to prioritarianism on the other hand, the weight of
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DOI: 10.1080/17449620903403283
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Journal of Global Ethics
Vol. 5, No. 3, December 2009, 173–179
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an additional benefit to an individual depends only on her own level of welfare, not on the levels
of others.
Furthermore, and related to this, egalitarianism can hardly be our only axiological principle.
This is because this principle implies that it is better to level down whenever doing so will
increase equality. That is, it implies that for example (2, 2) is better than (10, 5), where these
numbers refer to individual welfare levels. After all, the former outcome is more (in fact per-
fectly) equal. Therefore, we may want to combine our concern for equality with other concerns
or efficiency requirements, such as to avoid the implication that the levelled down outcome is
better. To entirely avoid the implication that levelled down outcomes are sometimes better,
we may require our principle to satisfy the pareto principle. The pareto principle implies that
if an outcome is better for some and worse for none than another, then the former outcome is
better. Nevertheless, as Parfit points out, even paretian egalitarianism will imply that (2, 2) is
in one respect non-instrumentally better than (10, 5). It is better as regards equality. Therefore,
even paretian egalitarianism is vulnerable to the ‘levelling down objection’, according to which
it cannot be in any respect better to level down (Parfit 1991, 17). Since prioritarianism, on the
other hand, does not involve a commitment to the value of equality, it is not vulnerable to this
objection (Holtug 2006, 136–40; 2010, Ch. 8).
It seems plausible that what egalitarians ascribe non-instrumental (dis)value to are states of
(in)equality. But what do prioritarians ascribe such value to? I want to suggest that they ascribe
non-instrumental value to compound states of affairs, each consisting of the state that a benefit of
a certain size befalls an individual and the state that this individual is at a particular welfare level,
where this value increases when the size of the benefit increases, but decreases when the level of
welfare increases. Thus, the (compound) state that a benefit befalls an individual at a lower level
is non-instrumentally better than the (compound) state that an equal benefit befalls an individual
at a higher level. To illustrate, the compound state where Amy, who has two welfare units,
receives an extra unit is non-instrumentally better than the compound state where Becky, who
has three welfare units, receives an extra unit.
With these clarifications in place, I want to focus on the (alleged) difference between egali-
tarianism and prioritarianism with respect to scope. Let us call a prioritarian principle that has
global scope ‘cosmopolitan prioritarianism’. Obviously, it makes a great difference whether
or not, insofar as we are prioritarians, we should be cosmopolitan prioritarians. After all,
given the grossly unequal global distribution of resources, it is plausible that cosmopolitan prior-
itarianism implies a very harsh verdict on the present global distribution, where obviously no
such harsh verdict on global distribution is implied by a prioritarian principle that has domestic
scope only.
3. Global justice
According to Parfit, the difference in structure between egalitarianism and prioritarianism has
implications with respect to the scope we may reasonably assign to these principles. As he
argues, when explaining the difference between egalitarianism and prioritarianism:
The chief difference is, then, this. Egalitarians are concerned with relativities: with how eachperson’s level compares with the level of other people. On the Priority View, we are concernedonly with people’s absolute levels.
This is a fundamental structural difference. Because of this difference, there are several ways inwhich these views have different implications.
One example concerns scope. Telic Egalitarians may, I have said, give their view wide scope.They may believe that inequality is bad even when it holds between people who have no connectionswith each other. But this can seem a dubious view. Why is it bad if, in some far away land, and quiteunknown to me, there are other people who are better off than me?
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On the Priority View, there is no ground for such doubts. This view naturally has universal scope. . . If it is more important to benefit one of two people, because this person is worse off, it is irrele-vant whether these people are in the same community, or are aware of each other’s existence. Thegreater urgency of benefiting this person does not depend upon her relation to the other person. Itdepends only on her lower absolute level. (Parfit 1991, 17)
It is not entirely clear to me what Parfit’s argument is here for why, unlike egalitarianism, prior-
itarianism naturally has global scope, but let me consider three possible readings. According to
the first, it is simply intuitively unappealing to hold that egalitarianism has global scope whereas
there is no similar intuitive restriction on prioritarianism. According to the second, whereas ega-
litarianism is a relational view and so implies that relations between individuals have underived
significance, prioritarianism is a non-relational view and therefore denies the underived signifi-
cance of co-citizenship, co-nationality and the like. And according to the third, it is because the
urgency of benefiting an individual depends only on her absolute level of welfare that prioritar-
ianism has universal scope. Let us consider these three arguments in turn.
According to the first argument, unlike egalitarianism, prioritarianism retains its intuitive
plausibility even when global in scope. As Parfit asks with respect to egalitarianism: ‘why is
it bad if, in some far away land, and quite unknown to me, there are other people who are
better off than me?’ On the other hand, it does not seem intuitively strange to claim that it is
more urgent that worse-off people benefit than that better-off people benefit, even if they are
members of distinct societies that do not have any form of contact to each other.
Now, I doubt that this is in fact the argument that Parfit has in mind. Even if cosmopolitan
prioritarianism has a sort of intuitive plausibility that a cosmopolitan version of egalitarianism
does not have, it would be peculiar to express this by saying that prioritarianism naturally has
universal scope. This expression suggests a stronger link between prioritarianism and cosmopo-
litanism than that cosmopolitan prioritarianism has intuitive plausibility (or more such plausi-
bility than a similar version of egalitarianism). In any case, while I myself consider
cosmopolitan prioritarianism an intuitively plausible view, my concern here is with whether
there is some kind of more fundamental ‘built in’ bias in prioritarianism towards global
scope, such as to warrant the claim that prioritarianism naturally has such scope.
Furthermore, insofar as we find the claim that it is (in at least one respect) bad if inequality
occurs between societies that have no contact intuitively troubling, this may be because when
that sort of inequality occurs, it is particularly obvious that inequality need not harm anyone.
That is, if I have no knowledge of these people in a far-away land who are better off than me
(and indeed there are no other causal connections between us), then it is plausible that their
being better off than me does not render me worse off. It is not as if I would have been better
off, had they (unknown to me) been no better (or worse) off than I am.2 But if this is why we
hesitate to consider the relevant kind of inequality bad, then it would seem that what we are
really motivated by is the levelling down objection.3 We do not find it in any respect better if
we go from inequality to equality, where this benefits no one. And if we are motivated by the
levelling down objection, then what we should question is not so much the claim that egalitar-
ianism has global scope as egalitarianism itself. This is because just as we can have cases of
levelling down between societies, we can also have cases of levelling down within societies.
According to the second argument, it is because, unlike egalitarianism, prioritarianism is a
non-relational view that it implies a global scope. But from the fact that prioritarians deny the
underived significance of how much an individual has relative to others, it does not follow
that they cannot assign underived significance to a different relation, for example, that of
being a co-national. Nor, for that matter, does it follow from the fact that a certain principle
ascribes underived significance to some relations that it ascribes underived significance to
others. So, for example, it does not follow from the fact that egalitarianism ascribes underived
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significance to relations between different people’s welfare levels that it assigns underived
significance to co-nationality. Therefore, I shall not consider this argument any further here.
According to the third argument, it is because the urgency of benefiting an individual
depends only on this individual’s absolute level (and so not on nationality and the like) that
prioritarianism has global scope. However, according to this argument, it is not just ‘local’ or
‘non-cosmopolitan’ versions of prioritarianism that are ruled out, but in fact any restriction
on the scope of prioritarianism. And while I may be willing to go along with this myself
(Holtug 2010, Chs. 8–10), I take it that most prioritarians will not be similarly inclined. Consider
the implications. When allocating resources between human and non-human animals, all that
matters is the absolute levels of welfare. It is plausible to claim that, in general, non-human
animals are significantly worse off – and so are entitled to higher levels of priority – than
humans. Therefore, prioritarianism may imply that a massive shift of resources from humans
to non-human animals would be a great improvement (Holtug 2007a; Vallentyne 2006).
Furthermore, if all that matters is the absolute welfare level of the beneficiary, her temporal
and modal status is in itself insignificant. Therefore, it does not matter whether she is present (i.e.
exists now), actual (i.e. exists in the actual history of the world), necessary (i.e. exists in all the
outcomes compared) or merely possible; everyone counts equally.
Likewise, it is in itself insignificant whether an individual is herself responsible for being
worse off; all that matters is her absolute level. Thus, this version of the argument rules out the
possibility of what we might call ‘priority of opportunity for welfare prioritarianism’, according
to which an individual is only entitled to compensation for being worse off insofar as she is not
herself responsible for so being.4
However, I doubt that Parfit intends to rule out every possible restriction in scope.5 Thus, he
says that prioritarians may hold either a ‘telic’ or a ‘deontic’ version of this view,6 where a
deontic view is not about the badness of outcomes (or axiology), but about what we ought to
do. One version of such a view about what we ought to do implies that ‘injustice essentially
involves wrongdoing’ (Parfit 1991, 10). With such a version, whether an individual is entitled
to compensation depends not just on her absolute level of welfare, but also on, for instance,
whether her (low) welfare level is a result of her being wronged by someone. In other words,
on this view, the scope of priority is restricted to cases that involve wrongdoing. If it is possible
to restrict the scope of priority in this way, then why, in principle, could we not restrict the scope
of prioritarianism such that it includes only, say, co-nationals? Nevertheless, perhaps we should
ignore Parfit’s claims about the possibility of a deontic priority view and simply take his con-
sidered position to be that priority has unrestricted scope.
A further question is then why Parfit thinks a prioritarian is committed to the view that the
urgency of benefiting an individual depends only on her absolute level of welfare. When Parfit
says that ‘if it is more important to benefit one of two people, because this person is worse off, it
is irrelevant whether these people are in the same community’ (my emphasis), this may mean
that if the rationale for benefiting the one simply is that it is more important to benefit the
worse-off, then this rationale drives us towards claiming that the globally worse-off have pri-
ority. After all, this rationale does not distinguish between the locally and the globally worse-
off. Parfit’s argument would then be a particular instance of Simon Caney’s claim that the
standard justifications for principles of distributive justice entail cosmopolitan principles
(Caney 2005, 107).
Let me make this argument more specific in light of the way I have characterised prioritar-
ianism. I have suggested that what prioritarians ascribe non-instrumental value to are compound
states of affairs, each consisting of the state that a benefit of a certain size befalls an individual
and the state that this individual is at a particular welfare level, where this value increases when
the size of the benefit increases but decreases when the level of welfare increases. If this is what
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has non-instrumental value, it would seem that we are forced towards cosmopolitan prioritarian-
ism. After all, such non-instrumental value can be realised by any human (in fact sentient) being
anywhere in the world.
However, to start, this reading of Parfit’s argument does not explain the alleged difference
between egalitarianism and prioritarianism with respect to scope. After all, a cosmopolitan ega-
litarian may similarly argue that if inequality is what has non-instrumental disvalue, then since
inequality can be realised anywhere (and not just within but also across communities), inequality
holds such disvalue wherever it occurs between people. That is, egalitarians can appeal to an
argument for cosmopolitanism of the same form.
Second, and more importantly, one need not believe that the prioritarian conception of non-
instrumental value to which I have referred is the whole story about why we should give priority
to the worse off. Even if we hold that what has non-instrumental value is the compound state of
affairs referred to above, this does not automatically imply that prioritarianism has global scope.
Consider again the principle that I have called priority of opportunity for welfare prioritarianism.
Proponents of this principle may appeal to the claim that it is non-instrumentally better to benefit
a worse-off individual than to (equally) benefit a better-off individual, but only if the worse-off
individual is not responsible for being worse off. That is, the non-instrumental value of the com-
pound state of affairs that a benefit of a certain size befalls an individual and that this individual
is at a particular welfare level may be conditional on the appropriate absence of responsibility.
Similarly, and more importantly for present purposes, it may be conditional on an appropriate
communal identity.7
For example, it may be claimed that from the perspective of a decision-maker in society A,
the compound state that Charlie, who has a welfare level of two, receives an extra unit is non-
instrumentally good, whereas the compound state that Doug, who likewise has a welfare level of
two, receives an extra unit does not hold any such value, if indeed Charlie is a member of A and
Doug is not. Of course, this need not imply that, from the perspective of the decision-maker,
there is no value to be found when Doug benefits, only that this value should not be explained
in prioritarian terms.
Furthermore, there is of course the possibility that the non-instrumentally valuable com-
pound state is extended such as to also include a further state. For instance, it may include
the state that an individual is not responsible for her welfare level herself. Alternatively, it
may include the state that she is a member of a particular community. While this will involve
an expansion of the original compound state, it is a move that is open to anyone with prioritarian
but non-cosmopolitan inclinations.
Therefore, it seems to me that Parfit’s argument does not establish that prioritarianism ‘natu-
rally has universal scope’. The relevant question, then, is not whether cosmopolitanism naturally
flows from prioritarianism, but whether the revision of prioritarianism needed to escape cosmo-
politanism has independent plausibility. Such a revision may, of course, take either of the forms
mentioned above; it may involve the claim that priority is conditional on communal affiliation,
and it may include further, community-related states in the compound states it claims to have
non-instrumental value.
4. Conclusion
I have argued that the disagreement between cosmopolitan and non-cosmopolitan prioritarians
cannot be settled by claiming that global scope ‘naturally’ follows from the structure of prior-
itarianism. Rather, the crucial question is whether there exist special relations between individ-
uals or groups in the domestic case that do not (similarly) exist between individuals or groups on
a global level, where these relations (a) have genuine moral significance, (b) are relevant to
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distributive (prioritarian) justice, and (c) give rise to an appropriate agent-relative ordering of
outcomes.8
I have also suggested that, likewise, the disagreement between cosmopolitan and non-
cosmopolitan egalitarianism cannot be settled simply on the basis of the structure of egalitarian-
ism. In fact, structurally, egalitarianism and prioritarianism seem to be equally capable of
accommodating cosmopolitan and non-cosmopolitan versions.
Interestingly, some political philosophers who are sometimes labelled ‘prioritarians’ expli-
citly reject the notion that our distributive principles have global scope, namely Thomas Nagel
and John Rawls.9 Thus, Rawls (1999) argues that unlike in the case of domestic justice, a global
‘social contract’ will not include a principle of distributive justice (but only, say, a duty of assist-
ance). Nagel suggests that the requirements of distributive justice attach to states whose
members are joint authors of a coercive system, and therefore only members of the state fall
within the scope of these requirements.10 What each of these rationales does (or attempts to
do) is to explain why certain special relations occur between members of the same people or
state that do not occur between these members and members of other peoples or states.
Whether they succeed in explaining this in a plausible manner is, of course, a different matter
(Abizadeh 2007; Pogge 1994). As I have indicated, I believe that prioritarianism has global
scope. However, to fully argue this, I would need to consider all the particular relations
between individuals that may be claimed to limit the scope of justice, including co-nationality,
co-citizenship, etc., and obviously this is a task I cannot undertake here.
Acknowledgements
I would like to thank Chris Armstrong, John Baker, Kasper Lippert-Rasmussen, Sune Lægaard,
Søren Flinch Midtgaard and an anonymous referee for helpful comments on an earlier version of
this article.
Notes
1. This characterisation of welfarism may be insufficient for various purposes (see Holtug 2003a), but forpresent purposes it will suffice.
2. Some theorists would deny this. They claim that the badness of inequality resides in the individuals forwhom it is bad, i.e. it renders them worse off. For such a ‘person-affecting egalitarianism’, see Broome(1991, Ch. 9).
3. More generally, we may be motivated by the thought that our axiology should take a person-affectingform. Roughly, this means that an outcome cannot be better (worse) than another in any respect, if thereis no one for whom it is better (worse) in any respect. For the suggestion that the levelling down objec-tion derives at least part of its force from some kind of person-affecting principle, see Holtug (1998,2003b, 2006, 140–43, 2010, Chs.7–8); and Temkin (1993, Ch. 9). I claim, and Temkin denies, thatthere exists a person-affecting principle that can ultimately support the levelling down objection.
4. For a statement and discussion of a couple of similar views, which he calls ‘luck prioritarianism’ and‘desert prioritarianism’, see Arneson (2000, 2006).
5. For a similar point, albeit with respect to Parfit’s account of the scope of egalitarianism, see Lippert-Rasmussen (2006, 110).
6. Parfit (1991, 20).7. In fact, there are numerous ways in which values such as equality and priority may be conditional.
Thus, according to a ‘socially located’ egalitarianism the (dis)value of (in)equality is conditional onits occurrence in a context of social cooperation. And according to Rawls, the (dis)value of (in)equalityis conditional on its being non-deserved (Rawls 1971, 74–75). Furthermore, according to AndrewMason, the (dis)value of (in)equality is conditional on its (harming) benefiting someone (Mason2001). I critically discuss Mason’s view in Holtug (2007b).
8. To illustrate the significance of (c), consider axiological nationalism. Thus, consider the view that Ishould apply prioritarianism to my co-national Danes, but not to people who have other nationalities.
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Thus, I will give priority to worse-off Danes over better-off Danes, but I will not give priority to worse-off Ethiopians over better-off Danes. However, it would be ludicrous to claim that everyone else,including Ethiopians, should similarly give priority to Danes. Therefore, the only kind of nationalismthat could have any credibility is what Jeff McMahan has called ‘universalist nationalism’, whichrequires individuals to have partiality towards their co-nationals (McMahan 1997, 108). Thus,Danes should be partial towards fellow Danes, Ethiopians towards fellow Ethiopians, etc. The orderingwill therefore be agent-relative, in that it varies depending on the individual ordering the outcomes(more specifically, on her nationality).
9. I say they are sometimes ‘labelled’ prioritarians because they may not qualify as prioritarians in thesense of this term I use here. In fact, Rawls most certainly will not because his difference principle(a) is concerned with groups rather than individuals, (b) is concerned with the distribution ofprimary goods rather than welfare, (c) concerns only the basic structure of society, and (d) does notallow for ‘trade-offs’ between the very worst off and others (Rawls 1971). For Nagel’s ‘prioritarian’account, see Nagel (1979, 1991).
10. Nagel (2005). In Nagel (1991), he defends prioritarianism and in Nagel (2005), he argues that distri-butive justice applies only within the state. Therefore, I am assuming that he takes prioritarianism toapply only within the state. However, as Chris Armstrong has pointed out to me, it is conceivable thathe believes that it is bad but not unjust if people in other parts of the world are worse off, because justiceapplies only within the framework of the state. Thus, prioritarianism would have global scope eventhough distributive justice does not.
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