Why Spending Smarter Beats Bigger Budgets | Karthik Muralidharan | TED

49,598 views ・ 2024-11-15

TED


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So the good news on global development is that key indicators,
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like child mortality and school enrollment,
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are better today than at any point in human history.
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However, the bad news
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is that though many more children are surviving,
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large numbers are not thriving.
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As of 2022, we had nearly 150 million stunted children,
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or around 22 percent of the world's children.
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Similarly, 70 percent of children aged 10 in low- and middle-income countries
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could not read a simple passage.
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Put together,
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the world is behind schedule on over 85 percent
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of the United Nations' Sustainable Development Goals.
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Now, at one level, this might seem very bleak,
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but I'm here today to tell you
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that I'm optimistic that we can accelerate global development,
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because there is a free lunch.
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OK, now you may be thinking, "Is this guy really an economist?"
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You know, we're taught that the first, basic lesson of economics
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is that there is no such thing as a free lunch.
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But I am a professor of economics,
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and I am going to show you a free lunch today.
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And the source of this free lunch
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comes from the fact that over the past two decades,
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the explosion in the availability of data, computing power
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and better research methods,
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including the growing use of randomized controlled trials in social policy,
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has helped us identify large sets of interventions
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that have a 10x return on investment that we’re not acting on.
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At the same time,
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the research has also identified that governments around the world
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spend billions of dollars on interventions that are pretty ineffective.
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And so the free lunch is pretty simple,
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that we can deliver a lot more for global development,
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not necessarily by spending more, but by spending smarter,
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which basically means spending less on things that are less effective
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and more on underfunded ideas that could be transformative.
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So let's explore this with a deep dive into global education.
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As with all other areas,
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the good news is that school enrollment is higher today
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than it ever had been before.
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The bad news is that this increase in enrollment has not translated
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into learning outcomes.
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So with 70 percent of 10-year-olds in low- and middle-income countries
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not able to read a simple passage,
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we have a global learning crisis.
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This is both a moral tragedy for the individual children
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whose lifelong capabilities and opportunities
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are constrained by weak education,
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but it's also a tragedy for their countries,
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because it limits long-term productivity and economic growth.
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Now, the normal approach to dealing with this problem
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is to say we need to spend more,
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either through more foreign aid or through higher government budgets.
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But what the research also shows
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is that most of the business-as-usual spending that we do
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is not very effective.
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In particular, we have studies showing that upgrading school infrastructure,
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hiring more credentialed teachers, increasing teacher pay,
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or even giving students free textbooks and laptops
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don't seem to be having much of an impact.
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So the question is, what is going on? How do you make sense of this?
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Now, one problem is a problem of governance and accountability,
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which limits the translation of public expenditure into outcomes.
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But a bigger problem may be weaknesses in pedagogy and teaching
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within the classroom, as seen in this figure.
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Now this figure comes from one of my studies in India,
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with a sample of over 6,000 kids,
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and I consider it to be perhaps the most important figure
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for understanding education in low- and middle-income countries.
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The x-axis here is the grade in which the student is enrolled.
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The y-axis is the level of learning.
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Now if students were making progress as per the rate of the curriculum,
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they should be on that 45-degree red line.
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In practice,
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kids fall behind quickly, for a variety of reasons,
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and stay behind.
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And the true rate of progress
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is around half of what is in the curriculum,
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as seen by the blue line.
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So what that means is your average eighth-grade kid in public school in India
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has about a fourth-grade level of understanding of mathematics.
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Now, further, with dynamic computer adaptive testing,
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we can pinpoint the exact learning level of every student in the sample.
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And so every circle here represents about 10 kids.
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And what you see now
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is if you focus on the eighth-grade part of that picture,
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is that in one eighth-grade classroom,
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you have students at a second-grade level, at a third, at a fourth, at a fifth,
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all the way up to an eighth-grade level of understanding.
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That means that this teacher has a nearly humanly impossible task
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of catering to that kind of variation in the classroom.
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And so what does the teacher do?
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Even a sincere, motivated teacher
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will focus on completing the curriculum and the textbook.
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But the problem is that does not translate into much learning,
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because it is so far ahead of the level of where the kids are.
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(Speaks in Hindi)
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(Cheers and applause)
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Now, what have I just done to you?
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(Laughter and applause)
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I have given you 25 seconds in the shoes of a typical kid in a typical classroom,
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in millions of schools around the world.
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(Cheers and applause)
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And so what that helps you understand is I could be highly motivated,
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highly qualified, highly sincere,
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but that instruction is not going to result in learning,
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because it's way above your level of understanding,
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and it will only reach a small fraction of the kids in the class,
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as we saw by those who put up their hands in this room.
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(Laughter)
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And now that also helps make sense
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of why default things like upgrading school infrastructure,
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increasing teacher pay, giving free textbooks
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or even free laptops,
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often don't seem to have much of an impact.
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And that's because they're not addressing the binding constraint to learning,
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which is the mismatch between instruction and comprehension.
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Now, while free tablets or laptops don't seem to have much impact by themselves,
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we found large positive effects
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of customized learning software, called MindSpark, in India,
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that was able to tailor instruction to every kid in the class.
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And so now, in that same eighth-grade class,
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you've got kids at completely different levels,
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but who are being taught at a level that's right for them.
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And the results were stunning.
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We saw among the largest gains in any education study
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done in developing countries,
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and in four months of the program,
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they gained about a full year of learning.
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OK, so that's the case to be optimistic.
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But this is TED.
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And so before we think that technology will replace the teacher,
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here's another tale of caution.
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During COVID, we ran another randomized controlled trial
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that gave a large number of kids free tablets with MindSpark,
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that we know works,
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and we gave it to them to use at home when schools were shut down.
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And unfortunately, the impact was exactly zero.
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And we know why,
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because you can track the usage,
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and you see that, without the adult supporting the child,
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there is no engagement and no learning.
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OK, so put together, what this tells us
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is that technology has the potential to be transformative,
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but it's not a silver bullet by itself.
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But if you use the data and the evidence to iterate the solution,
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you can use technology to transform education at scale.
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In other cases, completely low-tech interventions
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can be highly effective,
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such as remedial after-school tutoring programs,
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often run by high school graduates with no formal teacher training.
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In another recent study, we studied the impact
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of one of the world's largest COVID remediation education programs,
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run by the Indian state of Tamil Nadu.
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So in this program, the government hired
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about 200,000 young women with a high school degree
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to provide 60 to 90 minutes of remedial instruction after school.
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And it reached over three million students,
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and the program was highly effective,
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improved equity
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and was about 10 times more cost-effective than usual education spending.
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But that program would have been discontinued
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if we didn't present that study to the government leadership,
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because they would have thought,
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"It's one year after COVID. We don't need this."
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Now, this pattern of 10x ROI investments is not restricted to education.
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In sector after sector, ranging from education,
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early childhood development, welfare programs and even justice,
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the research over the past decade has identified
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a series of 10x ROI opportunities.
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Now, if you’re a private-sector investor and I’m offering you a 10x ROI,
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you'd be clamoring to put as much money to work as possible
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in that opportunity.
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But governments often don't act on these ideas,
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due to a combination of inertia, risk aversion
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and lack of political and bureaucratic incentives to act.
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As an economist, I don't worry about how Toyota produces its cars,
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because you face market prices for inputs and market prices for outputs,
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and if you're not efficient,
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there's competitive pressure to get you there.
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In contrast, governments can spend taxpayer money badly,
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and leave 100-dollar bills lying on the sidewalk for a really long time
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because they don't face a market test for their actions,
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and don't get the feedback
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on the effectiveness, or lack thereof, of their spending.
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And that's why research and evidence is especially important
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for guiding effective public spending,
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way more so than in the private sector,
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where you have the incentives that push you there.
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Now, it's going to be easy to think
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that governments are these big, lumbering beasts, which they are.
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But there is absolutely no getting away
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from the centrality of improving government effectiveness
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for global development.
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And that's because the problems of development
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are concentrated among the poor,
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and markets will typically not cater as much to the poor.
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Markets are wonderful things,
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and provide the incentives for the innovation
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and the dynamism needed to power modern economies.
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But markets don't care for you if you don't have purchasing power.
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And so the basic tension here
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is that the democratic ideal is one person, one vote,
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whereas the market values you on a one dollar, one vote principle.
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And that's why there's no getting away from building effective public systems
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to make sure that we can get the benefits of innovation
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to the poor at scale,
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who otherwise would not be able to afford them.
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This is how --
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(Applause)
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This is how we managed to substantially reduce infant mortality
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in the 20th century.
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It was not enough to have new knowledge
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on effective medical interventions,
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like vaccinations or oral rehydration therapy for diarrhea.
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It was essential to build the public systems
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that could take that new knowledge and deliver that at scale,
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and reach the poor,
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who otherwise would not be able to access these benefits.
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So, to summarize,
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in a world of slowing economic growth, climate change,
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wars and scarring from pandemics,
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there's a very real risk that progress in global development slows down,
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or even reverses.
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But we have reason to be optimistic
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that there is a huge free lunch on the table
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that we can act on by using data and evidence
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to improve the effectiveness of public spending.
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But just because it's free does not mean it is easy.
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It is free because you can achieve a lot more
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by spending smarter rather than spending more.
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But it is not easy, because that requires us to work with governments
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and patiently build the public systems
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to improve the effectiveness of public expenditure
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that can reach the poor at scale.
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This is, increasingly, what I've been working on,
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and I'm incredibly encouraged by my engagements
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and interactions with many outstanding government officials,
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in India and around the world,
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who want to do exactly this.
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And that's why I'm optimistic that we can sharply accelerate global development.
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Thank you.
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(Cheers and applause)
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