Development as Freedom

Development as Freedom
by Amartya Sen
Mid-1990s–1998English

Development as Freedom argues that development should be understood not primarily as economic growth, but as the expansion of substantive human freedoms—people’s capabilities to lead the kinds of lives they have reason to value. Amartya Sen criticizes narrow, income-centered and utilitarian conceptions of development, advancing instead a ‘capability approach’ that emphasizes the removal of unfreedoms such as poverty, tyranny, poor economic opportunities, social deprivation, and systemic neglect. He analyses the roles of markets, democracy, social choice, public reasoning, and social institutions in expanding or constraining human capabilities, and offers a framework for evaluating policy, institutions, and social progress in terms of the freedoms they support. The book thus bridges economics, political philosophy, and development practice, reshaping how development is theorized and measured.

At a Glance

Quick Facts
Author
Amartya Sen
Composed
Mid-1990s–1998
Language
English
Status
original survives
Key Arguments
  • Development is best understood as the expansion of substantive human freedoms—people’s capabilities to do and be what they have reason to value—rather than as mere growth in income, industrialization, or technological advancement.
  • Freedom is both the primary end and the principal means of development: expanding political, economic, and social freedoms is intrinsically valuable and also instrumentally effective in fostering economic growth, social progress, and human flourishing.
  • The capability approach provides a superior evaluative framework to utilitarian welfare, income-based metrics, or resource-focused perspectives because it directly addresses what people are actually able to do and be, taking heterogeneity, agency, and context seriously.
  • Democratic participation, public reasoning, and political freedoms are crucial instruments of development; notably, Sen argues that no substantial famine has ever occurred in a functioning democracy with a relatively free press, because public accountability compels responsive governance.
  • Markets, rights, and social institutions must be evaluated in terms of the freedoms they expand or restrict; markets can be important for freedom, but they require regulation, social protection, and collective action to prevent new forms of deprivation, inequality, and unfreedom.
Historical Significance

The book is a landmark in both development theory and political philosophy, cementing the capability approach as a major alternative to utilitarian and purely resource-based frameworks. It helped reorient global development discourse toward multidimensional measures of well-being, human rights, and agency, influencing indicators like the Human Development Index, Multidimensional Poverty Index, and various social inclusion metrics. Philosophically, it bridged analytical tools from social choice theory with normative arguments about freedom, equality, and justice, and contributed to debates on global justice, democracy, and gender equality. Its freedom-centered view of development remains foundational in contemporary development ethics and policy evaluation.

Famous Passages
No-famine-in-democracies thesis(Chapter 7, “Famines and Other Crises,” especially the section arguing that no famine has occurred in a country with a functioning democracy and free press.)
Development as removal of unfreedoms(Chapter 1, “The Perspective of Freedom,” in the early pages where Sen defines development as a process of removing major sources of unfreedom such as poverty and tyranny.)
Capabilities versus incomes and utilities(Chapter 3, “Freedom and the Foundations of Justice,” in the discussion contrasting the capability approach with utilitarianism and income-based views.)
Evaluation of inequality through capabilities(Chapter 4, “Poverty as Capability Deprivation,” in the analysis of how the same income can translate into very different real freedoms for different persons.)
Markets as freedoms and sources of unfreedom(Chapter 5, “Markets, State and Social Opportunity,” in the discussion of markets as both instruments of freedom and possible sources of deprivation without social safeguards.)
Key Terms
Capability: A person’s real freedom to achieve various valuable beings and doings—the substantive opportunities to lead the kind of life they have reason to value.
Functioning: An achieved ‘being’ or ‘doing’ (such as being well-nourished or taking part in community life) that represents an aspect of a person’s state of living; capabilities are opportunities to achieve functionings.
Capability Deprivation: A shortfall in basic capabilities—such as being adequately nourished, educated, or healthy—indicating a deeper form of poverty and unfreedom than income deprivation alone.
Unfreedom: A condition that restricts or denies substantive human freedoms, including poverty, tyranny, social exclusion, neglect of public services, and systemic intolerance or oppression.
Constitutive Freedoms: Freedoms that are intrinsic components of development itself, such as political participation, freedom of expression, and basic civil [rights](/terms/rights/).
Instrumental Freedoms: Types of freedom that contribute causally to the expansion of overall capabilities, including political freedoms, economic facilities, social opportunities, transparency guarantees, and protective security.
Poverty as Capability Deprivation: Sen’s redefinition of poverty as a lack of basic capabilities to achieve minimally acceptable functionings, rather than simply as low income or consumption.
Social Choice: The study and practice of aggregating individual preferences, values, or judgments into collective decisions, subject to informational and ethical constraints; a methodological backbone of Sen’s analysis.
Agency (Agency Freedom): A person’s ability to act and bring about change according to their own values and objectives, not merely to achieve personal well-being but also to pursue social, moral, or political goals.
Human Development: A broader, multidimensional approach to development focusing on enlarging people’s capabilities and choices, in contrast to narrow economic-growth or income-centered views.
Democracy (as a Universal Value): A political system involving public reasoning, participation, and accountability that Sen claims is universally valuable, both as an end and as a means of preventing disasters like famines.
Transparency Guarantees: Institutional features (such as a free press, open government, and legal protections against corruption) that ensure openness, trust, and informed public scrutiny, facilitating development.
Protective Security: Social arrangements—such as safety nets, unemployment benefits, and emergency relief—designed to prevent extreme deprivation and vulnerability among the poorest and most marginalized.
Globalization (in Sen’s sense): The growing integration of economies, cultures, and peoples across borders, seen by Sen as a historical process that can expand freedoms but also generate new unfreedoms without just institutions.
Human Development Index (HDI): A composite indicator used by the UNDP, influenced by Sen’s work, that measures development through income, life expectancy, and education, reflecting a shift toward capability-related metrics.

1. Introduction

Development as Freedom (1999) is Amartya Sen’s major non-technical statement of what has come to be known as the capability approach and a freedom-centered understanding of development. The book proposes that development should be conceived and evaluated primarily in terms of substantive human freedoms—what people are actually able to be and do—rather than in terms of economic growth, income, or industrialization alone.

Sen develops this perspective by arguing that various dimensions of freedom—political participation, economic opportunities, social services, transparency, and protective security—are both intrinsically important and mutually reinforcing. He draws on economic theory, philosophy, and empirical case studies to illustrate how the removal of “unfreedoms” such as poverty, famine, social exclusion, and authoritarian rule can be used as a central yardstick of progress.

The work is situated at the intersection of economics, political philosophy, and development studies. It challenges established metrics of welfare and success, such as national income or aggregate utility, and introduces a broader informational space for assessing lives and policies. While speaking to academic debates in welfare economics and theories of justice, the book is explicitly aimed at a wide audience, including policymakers and practitioners.

Over the course of its chapters, Development as Freedom elaborates a framework in which:

  • Freedom is both the end and means of development.
  • Capabilities and functionings replace income or resources as the primary focus of evaluation.
  • Political and social institutions are assessed according to their impact on people’s real opportunities.

Subsequent sections of this entry examine the historical context of the book, its internal structure, central arguments, methodological commitments, critical reception, and long-term influence in development thinking and political philosophy.

2. Historical and Intellectual Context

Development as Freedom emerged at the end of the 20th century, when post–Cold War optimism, accelerating globalization, and persistent global poverty coexisted with intense debates over markets, human rights, and democracy. The book synthesizes ideas Sen had developed since the 1960s in welfare economics, social choice theory, and ethics, responding both to the failures of rigid planning and to the perceived limitations of neoliberal policy prescriptions.

Development Thought and Policy Debates

In development economics, the period from the 1950s to the 1980s had been dominated by growth-centered models and, later, structural adjustment programs. By the 1990s, critics from various perspectives argued that these approaches neglected distribution, basic needs, and political freedoms. The United Nations Development Programme’s Human Development Reports (beginning in 1990, with Sen as an early intellectual architect) had already started to shift attention toward multidimensional well-being.

Sen’s framework interacts with several earlier currents:

CurrentRelation to Development as Freedom
Growth economicsProvides the target of Sen’s critique of income-focused development.
Basic needs approachesShares concern for non-income deprivations but extends it via capabilities and agency.
Human capital theoryAcknowledges the economic value of education/health but reframes them as freedoms rather than mere inputs.

Intellectual Lineages

Sen’s argument engages explicitly with:

  • Utilitarianism (Bentham, Mill): He draws on its concern for welfare yet contests its focus on utilities as the sole informational basis.
  • Rawlsian justice: Sen adopts Rawls’s concern for basic liberties and primary goods but contends that capabilities are a more appropriate metric than resources alone.
  • Libertarian and neo-liberal thought (e.g., Hayek, Nozick): He recognizes the importance of markets and individual rights, while emphasizing the need for social protections and public action.
  • Aristotelian and Marxian traditions: He parallels Aristotelian ideas of human flourishing and Marx’s emphasis on the “development of human capacities,” though without adopting their full theoretical frameworks.

The book also responds to contemporary disputes about the alleged “Western” character of democracy and human rights, postcolonial critiques of development, and the rise of human rights–based approaches, positioning the capability perspective within these overlapping debates.

3. Author and Composition

Amartya Sen (b. 1933) is an economist and philosopher whose work spans social choice theory, welfare economics, political philosophy, and development studies. Educated at Presidency College, Calcutta, and Trinity College, Cambridge, he held academic posts in India, the United Kingdom, and the United States. Prior to Development as Freedom, Sen had already produced influential monographs such as Collective Choice and Social Welfare (1970) and On Economic Inequality (1973), and empirical studies on famines, notably Poverty and Famines (1981).

Intellectual Trajectory

Sen’s early experience of the Bengal famine of 1943, and later encounters with poverty and social exclusion in South Asia and elsewhere, are frequently cited as formative. His academic career developed around two main strands:

  • Technical work in social choice and welfare economics, addressing how to aggregate individual preferences, measure inequality, and evaluate social states.
  • Normative and philosophical inquiry, examining liberty, equality, and justice and their informational bases.

Development as Freedom represents an attempt to make this body of work accessible to a broad readership, while integrating empirical development analysis with ethical argument.

Composition and Publication

The book was composed mainly in the mid-1990s and completed by 1998, during and after Sen’s tenure as Drummond Professor of Political Economy at Oxford and Master of Trinity College, Cambridge. It was first published by Oxford University Press in 1999.

Sen drew substantively on:

Prior WorkTheme carried into Development as Freedom
Poverty and FaminesEntitlement approach, analysis of famines without food shortage.
On Economic InequalityMeasurement of inequality and focus on distributional concerns.
Articles on “capability” (e.g. 1980s)Conceptualization of capabilities and functionings.
Collective Choice and Social WelfareSocial choice framework and informational pluralism.

Various chapters originated in earlier lectures (for instance, the 1990s Tanner Lectures and other public addresses) that were reworked, expanded, and integrated into a single, thematically unified treatise. The dedication “to Emma and Kabir” reflects Sen’s characteristic intertwining of personal and scholarly commitments, though the text itself maintains an academic tone.

The timing of publication coincided with Sen’s receipt of the 1998 Nobel Memorial Prize in Economic Sciences, which significantly amplified the book’s visibility in both academic and policy circles.

4. Structure and Organization of the Work

Development as Freedom is organized into three main parts, each composed of chapters that build progressively from conceptual foundations to empirical applications and broader thematic issues.

Overall Architecture

PartFocusChapters
Part I: PerspectiveFoundational concepts and overarching thesis.1–3
Part II: InterconnectionsEmpirical and analytical links among different freedoms.4–7
Part III: Other DimensionsAdditional thematic applications and global issues.8–11

Part I: Perspective (Chs. 1–3)

This part outlines Sen’s core idea that development should be seen as the expansion of substantive freedoms and introduces the capability approach. It contrasts this view with income-centred and utilitarian approaches and situates the capability perspective among theories of justice. The distinction between constitutive and instrumental freedoms is also introduced here, framing later discussions.

Part II: Interconnections (Chs. 4–7)

The second part examines how different types of freedom interact in practice. It explores poverty as capability deprivation, the role of markets and the state in creating economic and social opportunities, and the importance of democracy and public reasoning. The analysis of famines and crises illustrates how political and informational freedoms (such as free media) can prevent large-scale disasters, tying together institutional arrangements and individual capabilities.

Part III: Other Dimensions (Chs. 8–11)

The final part extends the framework to specific domains: gender relations and women’s agency, population dynamics and food security, cultural identity and value pluralism, and questions of globalization, markets, and international institutions. Each chapter elaborates a distinct dimension of freedom-centered development, while reinforcing the book’s emphasis on agency, public debate, and institutional design.

Throughout the work, Sen alternates between conceptual arguments, historical case studies, and contemporary policy examples, using recurring themes—such as the multiplicity of freedoms and the critique of narrow metrics—to maintain coherence across the diverse subject matter.

5. Central Thesis: Development as the Expansion of Freedom

The central thesis of Development as Freedom is that development should be understood primarily as the expansion of substantive human freedoms, rather than as economic growth, industrialization, or technological progress per se. Sen proposes that the removal of “unfreedoms” is both the defining goal and the chief means of development.

Freedom as End and Means

Sen distinguishes between:

  • Freedom as the primary end: Development is valuable because it enlarges people’s capabilities to live lives they have reason to value.
  • Freedom as the principal means: Political liberties, economic opportunities, social services, and transparency are effective instruments for achieving economic growth, social change, and protection from disasters.

In one oft-cited passage, he writes:

“The success of a society is to be evaluated primarily by the substantive freedoms that the members of that society enjoy.”

— Amartya Sen, Development as Freedom, ch. 1

Substantive versus Formal Freedom

The thesis emphasizes substantive rather than merely formal freedoms. A legal right to vote or to participate in markets does not suffice if people lack education, health, or resources to exercise those rights meaningfully. Hence, development is assessed by what people are actually able to do and be.

Critique of Narrow Conceptions of Development

Sen’s approach is framed against several traditional views:

ConceptionSen’s characterization
Income/GDP growthConsidered important but inadequate as the metric of development.
Utility maximizationCriticized for ignoring adaptive preferences and distributional issues.
Resource/primary goods focusSeen as incomplete because it does not account for heterogeneity in transforming resources into real freedoms.

The expansion-of-freedom thesis thus reorients development analysis toward a richer informational space, one that takes into account multiple dimensions of human life—health, education, participation, security, and more—as interrelated aspects of development itself.

6. The Capability Approach: Capabilities and Functionings

At the conceptual core of Development as Freedom lies the capability approach, which Sen developed across several decades and presents here in a comprehensive, non-technical way. The approach shifts evaluative focus from resources or utilities to what people are actually able to do and be.

Functionings and Capabilities

Sen distinguishes between functionings and capabilities:

ConceptBrief definitionExample
FunctioningAn achieved “being” or “doing.”Being well-nourished, being literate, taking part in community life.
CapabilityThe set of real opportunities to achieve various functionings.Having the genuine opportunity to be well-nourished or educated.

Functionings describe realized states of life, whereas capabilities capture the freedom to choose among alternative combinations of functionings. A person’s well-being, on this view, is better reflected by the range of valuable lives they can lead than by any single outcome or resource bundle.

Evaluative Focus and Plurality

Proponents interpret the capability approach as an “informational expansion”: evaluative exercises are no longer confined to income, commodities, or reported satisfaction but consider multiple, potentially incommensurable dimensions. Sen deliberately refrains from offering a fixed, canonical list of capabilities in this book, arguing that the selection and weighting of capabilities should be context-specific and subject to public reasoning.

Critics have suggested that this openness makes operationalization difficult and may introduce subjectivity in selecting relevant capabilities. Supporters counter that such flexibility is necessary to respect cultural diversity and democratic deliberation.

Relation to Individual Heterogeneity

A key claim is that individuals differ in their ability to convert resources into functionings, due to factors such as health, disability, age, gender, social norms, and environmental conditions. Two people with the same income can have very different capability sets. This focus on heterogeneity underpins Sen’s reconceptualization of poverty as capability deprivation, which is explored further in later sections.

7. Constitutive and Instrumental Freedoms

In Development as Freedom, Sen distinguishes between constitutive and instrumental freedoms to clarify how different dimensions of liberty relate to development.

Constitutive Freedoms

Constitutive freedoms are those that form part of what development is. They are intrinsic components of a flourishing life and of a just social order. Examples include:

  • Political participation and civil liberties.
  • Freedom of expression and association.
  • Freedom from hunger, malnutrition, and preventable morbidity.
  • Basic educational opportunities.

These freedoms are valued for their own sake, irrespective of any further consequences they may have for income or growth.

Instrumental Freedoms

Instrumental freedoms are specific types of freedoms that contribute causally to the overall expansion of people’s capabilities. Sen identifies five broad categories:

CategoryTypical examples
Political freedomsElections, civil rights, open debate.
Economic facilitiesOpportunities to participate in trade and production, access to credit.
Social opportunitiesEducation, health care, social services.
Transparency guaranteesFreedom of information, free press, protections against corruption.
Protective securitySocial safety nets, famine relief, unemployment benefits.

These are instrumental in the sense that they help secure other freedoms: for instance, political freedoms can avert famines, social opportunities can enhance economic productivity, and transparency can reduce abuses of power.

Interdependence

Sen emphasizes the interconnections between these freedoms. Instrumental freedoms are also often constitutive—for example, political freedom is both intrinsically valuable and instrumentally powerful in preventing disasters. This dual role underlies his broader thesis that freedom is simultaneously the end and the means of development.

Some commentators have questioned whether the distinction is always clear-cut, since many freedoms appear to play both roles. However, the framework is widely used in interpreting the structure of Sen’s argument and in relating institutional arrangements to individual capabilities.

8. Poverty, Inequality, and Capability Deprivation

A central contribution of Development as Freedom is its reconceptualization of poverty as capability deprivation, rather than as low income alone. Sen argues that a person is poor if they lack the basic capabilities required for minimally acceptable functionings, such as being adequately nourished, clothed, sheltered, educated, and able to participate in community life.

From Income Poverty to Capability Poverty

Sen maintains that income is an important means to capabilities but not a reliable proxy. Differences in personal circumstance, social norms, and environmental conditions imply that equal incomes can yield very unequal capabilities. For example, people with disabilities or those living in harsh climates may need higher income to secure the same functionings as others.

ApproachPrimary focusSen’s critique
Income povertyMonetary thresholds (e.g., $1.90/day).Ignores conversion factors and non-market deprivations.
Basic needsSpecific goods and services (food, shelter).May still treat needs as fixed commodities rather than freedoms.
Capability deprivationSubstantive opportunities to achieve basic functionings.Aims to capture both resources and the ability to use them.

Inequality in Capabilities

The capability lens also reframes inequality. Instead of focusing solely on income distribution, Sen urges attention to inequalities in health, education, political voice, and social inclusion. The same inequality in income may be more severe in capability terms if it affects those who face greater conversion difficulties (e.g., children, the elderly, marginalized groups).

This perspective has influenced later attempts to measure multidimensional poverty and human development, although Development as Freedom itself does not present a complete measurement toolkit.

Debates and Critiques

Supporters argue that the capability-based conception of poverty captures “real” deprivation more accurately and helps identify context-specific priorities. Critics contend that it can be difficult to specify which capabilities count as “basic” and how to compare capability shortfalls across individuals and societies. Some also worry that focusing on capabilities may shift attention away from structural determinants of income inequality, though proponents typically understand capability analysis as complementary to, rather than replacing, traditional distributional concerns.

9. Democracy, Public Reasoning, and Famines

A distinctive feature of Development as Freedom is its analysis of the relationship between democracy, public reasoning, and the occurrence (or prevention) of famines and other crises.

Democracy as Protective Mechanism

Drawing on historical case studies, Sen advances the influential claim that:

“No substantial famine has ever occurred in any independent and democratic country with a relatively free press.”

— Amartya Sen, Development as Freedom, ch. 7

He bases this on comparative analysis of famines in colonial India, authoritarian regimes, and one-party states versus democratic India and other democracies. According to Sen, electoral competition and a free press create strong incentives for governments to act promptly when food shortages or entitlement failures arise, because political leaders risk being voted out of office or publicly shamed.

Public Reasoning and Information

The concept of public reasoning—open discussion, criticism, and debate—is central. Sen argues that:

  • A free press and public discussion help disseminate information about emerging crises.
  • Public scrutiny makes it harder for authorities to deny or conceal problems.
  • Democratic space enables citizens, opposition parties, and civil society to mobilize pressure for relief measures.

He links this to broader claims about the instrumental role of transparency guarantees and political freedoms in development.

Extending Beyond Famines

While famines provide the most dramatic illustration, Sen extends the argument to other crises such as economic downturns, epidemics, and social conflicts. Proponents interpret his thesis as evidence that democracy is not a “luxury” of affluent societies but a developmental necessity.

Critics and subsequent scholars have examined apparent counterexamples (e.g., severe malnutrition or “silent emergencies” in democracies) and have debated whether formal democratic structures are sufficient, or whether deeper issues of inequality and power may blunt the protective role of democracy. Nonetheless, the democracy–famine linkage remains one of the most debated and cited claims in the book.

10. Markets, the State, and Social Opportunities

In Development as Freedom, Sen provides a nuanced account of markets, the state, and their joint role in creating social opportunities that expand human capabilities.

Markets as Instruments of Freedom

Sen emphasizes that the ability to engage in market transactions is itself a significant freedom. Markets:

  • Enable voluntary exchange and specialization.
  • Facilitate information flows about prices and scarcities.
  • Can promote efficiency and innovation.

He argues that deprivation of access to markets can be a form of unfreedom, particularly for small producers, workers, and women.

Limits and Failures of Markets

At the same time, Sen challenges views that treat markets as self-sufficient guarantors of welfare. Markets may:

  • Exclude those lacking initial endowments (land, credit, education).
  • Produce externalities (e.g., environmental damage).
  • Fail to provide public goods (education, basic health care).

These limitations justify state action and social policies that correct market failures and ensure broader access to opportunities.

Social Opportunities and Public Provision

Sen devotes particular attention to education and health care as social opportunities that both constitute and enable capabilities. Public provision or regulation in these areas is seen as enhancing individuals’ real freedom to participate in economic and political life.

DomainRole in capability expansion
EducationEnhances literacy, political participation, labor market opportunities.
Health careSupports survival, productivity, and capacity to use other freedoms.
Infrastructure and public servicesFacilitate mobility, communication, and access to markets.

State–Market Complementarity

Rather than framing the issue as “state versus market,” Sen presents an account of complementarity:

  • Markets are important means of freedom, but they require supportive institutions and regulations.
  • The state has a role in guaranteeing social opportunities, transparency, and protective security.

Supporters interpret this as a middle path between statist planning and laissez-faire liberalism. Critics from more market-oriented perspectives argue that Sen underestimates the potential of markets and risks overextending state responsibilities, while more radical critics contend that he underplays structural inequalities entrenched in market systems. The book itself focuses primarily on how institutional arrangements can be judged by the freedoms they generate or restrict.

11. Gender, Population, and Social Change

Development as Freedom devotes substantial attention to gender relations, population dynamics, and their role in social transformation, particularly in Chapters 8 and 9.

Women’s Agency

Sen challenges portrayals of women solely as passive recipients of welfare or population policies. He emphasizes women’s agency—their capacity to act and shape social outcomes—as both intrinsically important and instrumentally effective. Enhancing women’s education, employment opportunities, and political participation is associated, in his account, with:

  • Lower fertility rates and delayed childbearing.
  • Improved child health and nutrition.
  • Shifts in social priorities within households and communities.

He discusses empirical patterns, such as the differing trajectories of gender inequality in regions of South Asia, East Asia, and elsewhere, and earlier work on the “missing women” phenomenon, where demographic imbalances suggest gender-based mortality disadvantages.

Population, Fertility, and Freedom

In addressing population growth, Sen contrasts coercive population control policies with approaches rooted in expansion of freedoms, especially for women. He argues that when women have access to education, health care, employment, and reproductive rights, fertility tends to decline voluntarily, without authoritarian measures.

Policy approachCharacterization in Sen’s account
Coercive population controlsViewed as violations of freedom and often unnecessary.
Freedom-based approachesEmphasize capabilities (especially of women) and social services.

Social Change and Intergenerational Effects

The book highlights the intergenerational implications of gender and population dynamics. Improved capabilities for women are linked to:

  • Investments in children’s education and health.
  • Altered demographic structures and dependency ratios.
  • Wider public support for social reforms.

Supporters of Sen’s analysis see it as reinforcing the normative case for gender equality through empirical evidence about development outcomes. Critics suggest that it may overemphasize individual agency without fully addressing structural patriarchy, or that it risks instrumentalizing women’s empowerment by tying it too closely to demographic goals. Nevertheless, the focus on women’s agency and freedom remains a central feature of the book’s treatment of social change.

12. Culture, Values, and Human Freedom

In Development as Freedom, Sen engages with debates about culture, values, and the alleged cultural specificity of democracy and human rights. He rejects both cultural determinism and simplistic universalism, instead emphasizing internal diversity and public reasoning within cultures.

Culture as Context and Resource

Sen treats culture as part of the context within which capabilities are formed and evaluated. Cultural norms can:

  • Support capabilities (e.g., traditions of public debate, mutual aid).
  • Constrain capabilities (e.g., restrictive gender norms, caste barriers).

Rather than viewing culture as static, he emphasizes its evolving and contested nature, shaped by internal arguments and external interactions.

Universalism and “Western Values”

The book addresses claims that democracy, human rights, and individual freedom are uniquely “Western” concepts. Sen counters by:

  • Citing historical examples of public reasoning and proto-democratic practices in non-Western societies.
  • Highlighting indigenous traditions of tolerance, pluralism, and critique in Asia, the Middle East, and elsewhere.

“No culture can be seen as being uniformly hostile or uniformly favorable to democracy and human rights; there are debates and divisions within every culture.”

— Amartya Sen, Development as Freedom, ch. 10

Proponents interpret this as an argument for “plural grounding” of human rights and freedoms across cultures. Critics contend that Sen still works within a broadly liberal framework that may not fully encompass non-liberal value systems or power-laden global cultural dynamics.

Freedom to Choose Cultural Identities

Sen also stresses the capability to reflect on and choose one’s cultural affiliations, rather than having identities rigidly ascribed. Cultural membership is seen as a matter for agency and public debate, not immutable destiny. This feeds into his broader emphasis on public reasoning as a mechanism for revising social norms, including those rooted in cultural traditions.

The discussion of culture thus serves to defend the possibility of cross-cultural dialogue about freedom and rights, while acknowledging diversity and rejecting both relativist and monolithic portrayals of civilizations.

13. Globalization, Justice, and International Institutions

The final chapter of Development as Freedom considers globalization, international justice, and the role of global institutions through the lens of capabilities and freedoms.

Globalization as Historical Process

Sen presents globalization as a long-run process of cross-cultural and economic interaction, not a purely contemporary or Western-driven phenomenon. He notes historical exchanges in science, mathematics, commerce, and ideas across Asia, Europe, Africa, and the Americas, suggesting that:

  • Globalization has historically facilitated the spread of knowledge and opportunities.
  • It has also been associated with exploitation, colonialism, and new forms of unfreedom.

Evaluating Globalization Through Freedom

Rather than endorsing or rejecting globalization wholesale, Sen proposes evaluating it by its impact on people’s capabilities:

Aspect of globalizationPotential impact in Sen’s framework
Trade and capital flowsCan expand opportunities but also increase vulnerability and inequality.
MigrationMay broaden choices but can involve rights violations.
Global information flowsCan support transparency and public reasoning, but also lead to new exclusions.

He argues for institutional arrangements that enable people in poorer countries to benefit from global markets and technologies, while protecting them from volatility and marginalization.

International Institutions and Justice

Sen discusses the role of organizations such as the World Bank, IMF, and WTO, as well as the United Nations and international human rights regimes. He advocates for:

  • Greater attention to the voices and interests of poorer countries and marginalized populations.
  • International cooperation to secure basic capabilities (e.g., health, education) as global concerns.

The book does not offer a fully worked-out theory of global distributive justice, but it suggests that cross-border obligations should be understood in terms of promoting freedoms and reducing capability deprivations worldwide.

Critics from cosmopolitan perspectives argue that Sen’s framework might be too institutionally modest or under-specified, while others contend that his approach underestimates the structural power imbalances embedded in global economic rules. Nonetheless, the capability-oriented evaluation of globalization has been influential in subsequent debates about global governance and development ethics.

14. Philosophical Method and Relation to Theories of Justice

Development as Freedom employs a distinctive philosophical method that draws on Sen’s work in social choice theory while engaging with major theories of justice, especially utilitarianism and Rawlsian liberalism.

Informational Pluralism and Social Choice

Sen’s method emphasizes informational pluralism: evaluations of well-being and justice should consider multiple types of information—capabilities, rights, agency, and processes—rather than reducing everything to a single measure like income or utility. His background in social choice theory informs this commitment, highlighting how different informational bases lead to different collective judgements.

He also resists seeking a unique, fully all-things-considered social ranking. Instead, he favors partial orderings and comparative assessments that can guide public reasoning without pretending to deliver a complete blueprint for justice.

Engagement with Utilitarianism and Rawls

Sen critically engages with several traditions:

TheoryPoints of engagement in Development as Freedom
UtilitarianismAppreciates focus on welfare but criticizes reliance on utilities, adaptive preferences, and aggregation that overlooks rights and distribution.
Rawlsian justiceShares concern for basic liberties and priority to the worst-off, but argues that primary goods are an inadequate metric; proposes capabilities instead.
Libertarian/entitlement theoriesRecognizes value of negative liberty and property rights, but maintains that an exclusive focus on formal liberties neglects social and economic capabilities.

Sen describes his approach as more “realization-focused” and comparative than transcendental: instead of specifying an ideally just society, he focuses on reducing injustice and unfreedom relative to feasible alternatives.

Open-Endedness and Public Reasoning

A salient methodological feature is deliberate incompleteness. Sen does not present a fixed list of capabilities or a single principle for resolving all trade-offs. Proponents interpret this as respecting plural values and democratic processes, leaving room for public reasoning to identify context-relevant capabilities and priorities.

Critics, including some influenced by Martha Nussbaum’s more list-based version of the capability approach, argue that this openness may weaken the approach’s normative guidance. Others suggest that Sen’s comparative method, while powerful for policy analysis, may not satisfy demands for a fully specified theory of distributive justice. Development as Freedom positions itself more as a framework for evaluation and reasoning than as a complete philosophical system.

15. Policy Implications and Measurement Challenges

Development as Freedom has significant implications for policy design and measurement, though it does not present a single operational blueprint. Instead, it offers criteria and directions grounded in the capability perspective.

Policy Orientation

Sen’s framework implies that policies should be assessed according to how they affect people’s capabilities rather than only their incomes or commodity bundles. This has several broad implications:

  • Priority to basic capabilities (e.g., health, education, nutrition, security) as development goals.
  • Emphasis on institutional reform that enhances political freedoms, transparency, and accountability.
  • Recognition of heterogeneity, suggesting that policies may need to be tailored to different groups (e.g., children, people with disabilities, women in patriarchal societies).

The approach has influenced instruments such as the Human Development Index (HDI) and later multidimensional poverty measures, although those tools embody only a subset of Sen’s broader ideas.

Measurement Challenges

Operationalizing capabilities raises several difficulties:

ChallengeDescription
Selection of capabilitiesDetermining which capabilities matter most and should be measured.
Aggregation and weightingCombining multiple dimensions into indices or rankings.
Data requirementsCollecting reliable, disaggregated data on non-income dimensions.
Evaluating agency and process freedomsCapturing political participation, public reasoning, and rights empirically.

Sen acknowledges these challenges and argues that measurement choices should be made through explicit value judgements and public discussion, rather than being hidden behind ostensibly “neutral” metrics.

Diverse Responses

Some scholars and practitioners have sought to operationalize the approach by:

  • Proposing specific capability lists (e.g., Nussbaum and others).
  • Developing multidimensional indicators (e.g., Alkire and colleagues).
  • Designing participatory methods to elicit locally relevant capabilities.

Critics maintain that these efforts risk either oversimplifying the framework or introducing arbitrariness. Others note that the data demands of capability-based assessments can be particularly burdensome for low-income countries. The book itself highlights these issues, presenting the capability approach as a guide for more reflective measurement and policy, rather than as a fully codified technical tool.

16. Reception, Criticisms, and Debates

Development as Freedom was widely discussed across economics, philosophy, and development studies, provoking both strong endorsements and critical scrutiny.

Positive Reception

Many commentators praised the book for:

  • Reorienting development discourse from growth to freedom and capabilities.
  • Bridging technical economics and normative political theory in an accessible style.
  • Providing an ethical foundation for the human development and rights-based approaches.

International organizations, including the UNDP and various development agencies, drew on Sen’s ideas in revising development strategies and creating new indicators.

Key Criticisms

Scholars from different perspectives have advanced several lines of critique:

Critical themeMain concerns
Indeterminacy and operationalizationThe absence of a definitive list of capabilities and precise decision rules is said to hinder policy application.
Incomplete theory of justicePolitical philosophers argue that Sen does not provide a full principle of distribution or a clear account of global justice.
Underestimation of traditional metricsWelfarist economists contend that income and utility, appropriately used, remain powerful and tractable indicators.
Liberal individualismPostcolonial and critical theorists suggest the framework rests on liberal notions of agency and may not fully capture structural power relations, class, or collective identities.
Empirical and administrative demandsPractitioners highlight the difficulty of gathering capability-relevant data and implementing multidimensional policies in resource-constrained settings.

Debates and Extensions

The book sparked extensive debate and further development of the capability approach:

  • Martha Nussbaum proposed a more specified list of central capabilities, inviting comparison with Sen’s open-ended method.
  • Sabina Alkire and others worked on operationalizing the approach in poverty analysis.
  • Critics from Marxist, feminist, and postcolonial traditions have engaged with Sen’s ideas on power, gender, and global inequality, sometimes extending and sometimes challenging his framework.

These debates have positioned Development as Freedom as a central reference point in contemporary discussions of justice, welfare, and development strategy.

17. Legacy and Historical Significance

Development as Freedom is widely regarded as a landmark in late 20th-century thought on development and justice, shaping academic research, policy discourse, and public debates.

Influence on Development Theory and Practice

The book helped consolidate the capability approach as a major alternative to growth-centred and purely resource-based views of development. Its legacy is visible in:

  • The ongoing Human Development paradigm and the HDI, to which Sen contributed conceptually.
  • The rise of multidimensional poverty and social inclusion indices that incorporate education, health, and living standards.
  • Policy frameworks that emphasize rights, participation, and accountability, including rights-based approaches in international development organizations.

Impact on Philosophy and Economics

Within philosophy, the work contributed to shifting discussions of justice away from purely resource or utility metrics toward capability-based evaluations. It informed debates on:

  • The informational foundations of justice.
  • Comparative versus transcendental theories.
  • The role of public reasoning and democracy in ethical assessment.

In economics, Development as Freedom reinforced trends toward welfare economics with richer informational bases, spurring work on inequality, social choice, and behavioral dimensions of poverty.

Cross-Disciplinary Reach

The book has been used across disciplines—political science, sociology, public health, education, and gender studies—to frame questions about inequality, empowerment, and agency. Its emphasis on women’s agency, democracy, and public reasoning has influenced both empirical research and normative argument.

Historical Position

Published at the cusp of a new millennium and amid intensifying globalization, Development as Freedom is often seen as part of a broader turn toward normatively explicit, human-centered development thinking. It also coincided with, and arguably reinforced, growing global attention to human rights, participatory governance, and social protection.

Subsequent scholarship has diversified and sometimes contested Sen’s framework, but the book continues to serve as a foundational reference for those seeking to analyze and advance development as the expansion of human freedoms.

Study Guide

intermediate

The work is written for an educated general audience rather than specialists, but it weaves together economics, philosophy, and empirical case studies. Readers need comfort with abstract concepts (capabilities, functionings, instrumental vs. constitutive freedoms) and with policy-oriented argumentation, though no advanced mathematics is required.

Key Concepts to Master

Capability

A person’s real freedom to achieve various valuable beings and doings—the substantive opportunities to lead the kind of life they have reason to value.

Functioning

An achieved ‘being’ or ‘doing’ (such as being well-nourished or taking part in community life) that represents an aspect of a person’s actual state of living.

Capability Deprivation / Poverty as Capability Deprivation

A shortfall in basic capabilities—such as being adequately nourished, educated, or healthy—indicating a deeper form of poverty and unfreedom than income deprivation alone.

Unfreedom

Any condition that restricts or denies substantive human freedoms, including poverty, tyranny, social exclusion, neglect of public services, and systemic oppression.

Constitutive vs. Instrumental Freedoms

Constitutive freedoms are intrinsic parts of development (e.g., political participation, freedom from hunger); instrumental freedoms are specific types of freedoms—political, economic, social, transparency, protective—that causally contribute to expanding overall capabilities.

Social Choice and Informational Pluralism

Social choice is the study of aggregating individual preferences or judgements into collective decisions; informational pluralism is Sen’s insistence that such evaluations use multiple types of information (capabilities, rights, processes), not just income or utility.

Agency (Agency Freedom)

A person’s ability to act and bring about change according to their own values and objectives, including social and political goals, not just personal well-being.

Human Development and the Human Development Index (HDI)

Human development is a multidimensional approach to progress focused on enlarging capabilities and choices; the HDI is a composite index (income, education, life expectancy) that approximates this shift away from GDP alone.

Discussion Questions
Q1

In what ways does defining development as the expansion of substantive freedoms change how we should evaluate a country’s progress compared to using GDP per capita alone?

Q2

How does Sen’s distinction between capabilities and functionings help explain why two individuals with the same income might still experience very different levels of freedom?

Q3

Sen argues that no substantial famine has occurred in a functioning democracy with a relatively free press. What mechanisms does he identify to explain this, and how persuasive do you find this explanation in light of other kinds of crises (e.g., chronic malnutrition, pandemics)?

Q4

Discuss how Sen’s five categories of instrumental freedoms (political freedoms, economic facilities, social opportunities, transparency guarantees, protective security) interact in practice. Can you identify a case where strengthening one of these without the others might fail to expand real capabilities?

Q5

Compare Sen’s capability approach with Rawls’s focus on primary goods as the metric of justice. What advantages and difficulties arise when we shift from distributing resources to expanding capabilities?

Q6

How does Sen integrate gender and women’s agency into his broader theory of development as freedom, and to what extent does this integration address feminist concerns about power and structural inequality?

Q7

Sen is critical of both cultural relativism and claims that democracy and human rights are exclusively ‘Western’ values. How does his treatment of culture in Development as Freedom attempt to reconcile universalism with respect for cultural diversity?

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APA Style (7th Edition)

Philopedia. (2025). development-as-freedom. Philopedia. https://philopedia.com/works/development-as-freedom/

MLA Style (9th Edition)

"development-as-freedom." Philopedia, 2025, https://philopedia.com/works/development-as-freedom/.

Chicago Style (17th Edition)

Philopedia. "development-as-freedom." Philopedia. Accessed December 11, 2025. https://philopedia.com/works/development-as-freedom/.

BibTeX
@online{philopedia_development_as_freedom,
  title = {development-as-freedom},
  author = {Philopedia},
  year = {2025},
  url = {https://philopedia.com/works/development-as-freedom/},
  urldate = {December 11, 2025}
}