s UBftJUUBS Of nc*: Dewey HD28 .M414 ALFRED P. WORKING PAPER SLOAN SCHOOL OF MANAGEMENT EXPORT PROMOTION AS A DEVELOPMENT STRATEGY By Julio WP#178i»-86 J. Rotemberg- May 1986 MASSACHUSETTS INSTITUTE OF TECHNOLOGY 50 MEMORIAL DRIVE CAMBRIDGE, MASSACHUSETTS 02139 EXPORT PROMOTION AS A DEVELOPMENT STRATEGY By Jul io J. Rotemberg" WP#1 784-86 May I986 "Sloan School of Management, M. .T. wish to thank Rudiger Dornbusch, Paul Krugman and Garth Saloner for helpful discussions. I I EXPORT PROMOTION AS A DEVELOPMENT STRATEGY ABSTRACT This paper has two aims. First it presents a model of the advantages Second, it warns that in such a model, export of promoting exports. promotion may be of benefit only to a limited group of countries. Encouraging others to become outwards oriented may be detrimental to welfare. The fact that, for the exporting sector to be viable, the scale of the exporting sector must be large relative to the optimal scale of exporting firms is advanced as the motivation for export promotion. 1 then argue that the scale of the exporting sector may, in equilibrium, be a signal of the export good's quality. Large capacities in the sector are required to convince importers to pay high prices. Such high capacities may effectively deter countries capable of producing only low quality goods from subsidizing exports. T INTRODUCTION two has paper This First aims. Second, promoting exports. advantages of model, export promotion may be of others Encouraging countries. it presents a model of the warns it such a that in benefit only to a limited group outwards become to oriented of may be detrimental to welfare. It is widely recognized (see Bhagwati (1978), Balassa (1980) countries that have emphasized instance) that less developed better terms exports, of success the "The evidence growth economic on import- to rely quite conclusive: and employment than He, and many outward-oriented such of is exports development strategies perfomed import orientation". countries with continued view have continued outward-oriented applying in who Balassa (1980) says: substitution. countries those faster than have grown for others, economies as Korea and Taiwan worth emulating and recommend that those nations who are still clinging to import substitution change their ways. point out important to It is outset that at the the policies followed by the successful outwardly oriented nations has not been the dismantle tariffs of edifice erected by previous to policies. Instead, they have added to this edifice various measures designed promote exports. have been the paradoxical in models, terms it of (1956)). is Thus, source weU known and of is the export promotion itself their new the standard light of trade it riches. 2X2X2 trade to which must This, in models. itself, is In these that export biased growth tends to worsen the can even lead to a loss in welfare (Bhagwati Reliance on exports also leads to more exposure to the risk -3of protectionism. In been has there fact, Bhagwati (1978) stresses advantages of export promotion. The in may be While this Balassa et when in second following an outwards oriented have been appear to capital inflows The and industries. to obtain of the Yet, oriented strategy. those mask considerable variations incentives across individual products that capital inflows are easier fewer true, aggregate statistics like (1982) undoubtely al. two ideas. with export promotion policies have first is that countries distortions. theorizing about the formal little is outwards countries, foreign important only Korea. in Now, Korea may well have a debt problem. Section export promotion. profitable that is paper this of II presents rests on the notion that exports It when they are carried out on a There optimal for a single firm. in effects of this externality can be should subsidize recommendation exports. given Yet, that so exporters more used must many countries subsidies. all countries suspicious of this chosen have the same data even after seeing subsidize their exports be The viable. argue that to one one one then an externality: mitigated with export principle be could in may only become scale larger than the is makes other exports firms' increase This model a different rationale for not to as Bhagwati (1978) and Balassa (1980). I think chosen not their own is it least plausible that those countries to subsidize their interest. self that for certain relatively at large determinants of exports Thus have done so the model countries, exports would scale. the The relatively model large that have in the pursuit present has the I not be profitable also scale seeks to of feature even explain in the that must be built up -4- export before become industries which exportts are ultimately succesfull. may serve installed in the export sector Spence the of (1973)) amount obtain high they would quality so large is goods quality countries that would Then, at of Countries mask least temporarily, However, their products. prices for build infer that the good countries capable such At high of high these equilibria, unable to produce themselves to be is producing of capacity. there export sector level of capacity in the that only know the exportable good. of importers to required for is capacity as a signal (in the sense producers. exist equilibria in which the that shows that the capacity in the export sector to of good quality themselves as It in those countries in produce good quality products would be willing intrinsically unable to to subsidize a small quality even viable high quality exportables abstain from promoting exports. Starting convince all at these equilibria, information contained in the who can produce high quality output. it Alternatively developed to the This not only goods but also, by from other which high capacity efficiently. Then is forcing This argument IV closes the paper with a to promote those countries that is is caveat exports only exporters to be worse export industry to this off. It technically similar to the one in section in the only for their They must do countries. encouraging countries presents a model which lead countries these countries worse off by Section in Section III. may leads eliminating the goods to receive lower prices makes themselves argument that installed capacity, leads countries that are high quality in well be ill-advised to export industry more. to subsidize their differentiate may nations to subsidize their exports. countries to produce inappropiate them it needed to II export find the necessary -5- export sector very subsidies to the Transfers export promotion. promote they do exports from distortionary will abstain such countries with the condition that to hurt not other exporting nations in the absence of terms of trade effects. THE MODEL: EQUILIBRIUM EXPORT PROMOTION II consider one good, say I A from country consumers in to if country B. trade effects that In the Thus, period observing installed capacity. the good is of Install, capable in This of will To ensure simplest I assume only producing later be country B know , if pay P is it TV for pay willing to ignore the deleterious terms I bring about. quality at least equilibrium, a In the second period, K to They are is of There are two observable not the capacity if K initially that ; by the capacity of shown to instaUed in the K quality at least it must be such goods K is of that (h-countries) while others do be true for certain having already experienced the values of K . good, customers its quality. that collective action must assume that way high consumers infer otherwise they infer For this to be the case, the level low quality. countries I good quality producing country equals of pay more for the good to export promotion can first two qualities, be of However, they can make inferences on the good's quality by customers. in good can This Country B's customers are wUling for low quality sets. periods. potentially exportable is they are known to be of high quality. only P not. which sets, country B are willing of high quality. sets TV it is is needed to achieve a costly for firms to of modelling this is to capacity grow large. The assume that capacities above some level k'" are prohibitively costly while k smaller than is thus 1 . which enables them to a technology assume that n firms have access K to build a capacity of k at costs given by: k < k"™ ck k that it n these of quality country and of TF^ K = - (P^ c + K^ if ti it is in a if it built a capacity both periods but whether now consider choose to produce for the firm a high is in low quality one: k < Rr^)k in I individuaUy, of necessary to ensure is Having . in either. Doing so would yield profits export. Kh exceed produce k units would, firms m produce k units cannot produce more than any nk these firms can costlessly of k, nk'" > , (1) socially possible to is K^ > k"" condition that where the k"" < , k"™ (2) TT^ = (p^ - where R Thus, high is Either, the k < k"" the high quality as their It is h it I future must r . is . a price becomes known. it ) must point out that for one be heavily prices are nor enough to induce i between p , somewhat higher a fortiori) consider, slow in learning from those h 1 (and important to case and do receive quality firms be needed nonzero k. which RpV a discount factor is second period action to c + of it 1 J and p . the prices in For collective be negative to h be for negative, two conditions must hold. discounted so that future high firms to invest or customers must that have experienced the good be that good -7- quality being produced is so that r single producer installs some buyers pay and thus leads little be will case, In this . capacity that capacity good quality buyers that to convince low is when insufficient is produced. This makes producers. to losses for k Consider instead the profits to a firm that has a capacity of while other firms, together, have W are if ,,h W ,h = a capacity of (K -k W located in an h- country and is it (p - c a Its ). profits otherwise: ^„h,,m Rp )k + (3) W = (p Note c - even that goods quality Rp + )k firms (1- countries) it W is is get Unless installed capacity is large. good located never socially beneficial. never +Rp p W positive, is ) firms must export. is alone, W negative and TT it Q . sufficient capacity 1 c by start the analysis positive there are two equilibria little For which again requires The first has and make losses. Then, each firm has an incentive is positive available to ensure high prices. if all no production for optimal to invest in capacity because, be paid will production of it is in h-countries. invest simultaneously. No firm finds W produce the good. must equal or exceed studying the incentives to invest With when period production of the unless Similarly, that the future be significantly discounted. that produce low in the first paid of 1-countries to in the interest to be positive (p countries in if it The second has to invest The because presence of these two equilibria is akin to the multiplicity of equilibria that arise in the context of adopting superior telephone systems (see -8- Rohlfs There (1974)). too, adoption system by others makes of a adoption more attractive. Another possibility, considered adoption decisions that the is the adoption sequentiaUy but are made n This requires that there first exist occurs simultaneously. Itself FarreU and Saloner (1985a) in decision periods in which firms decide whether to invest or not. After this round Then of periods over, is the unique equilibrium all invest simultaneously. the firms when W positive is is for firms to invest since they can always expect the last firm to decide to invest if all the previous firms have decided to do so. Yet, a more natural dynamic setup in the context considered is invest early earn even when other firms at first ti case no firm wiU want to invest early and only equilibrium producing for be to Then, and invest sequentially. that firms both decide one the which in me This leads export. In this follow. all firms refrain from assume that to firms that natural to expect the is it here in the model presented here the equilibrium with no investment wUl prevail when it exists. government The can encouraging firms to invest way if proposed eliminate first K /k is good. This and Spatt (1983) by Dybvig Once requisite capacity the if firms are promised W price positive. is will unless the government is essentially the , by principle, one be solution the problem of adoption they wiU invest in the Moreover, once they automatically would, in principle, incurr no cost. In firms that they wUl for p equilibrium this the export sector. they export the externalities. capacity, in promise the of doing so is to paid p^ easily equal p so the invest in government This policy has the danger that, very precise as to the nature of the good for : -9- which it ensures take advantage goods to hand, a price of p produce shoddy and On government's program. of the government precise may firms , dictated may specifications cheap the other lead to Inappropiate product designs. An is remedy which would appear alternative and/or production of the export industry. to subsidize the capacity Indeed, subsidization credit of exporting industries and other to rebates are widely used policy export subsidies such as tax outward oriented economies such as Korea the government does be much more flexible to as not, 3 The question . is There are susbsidy contingent on the export drive being unsuccesfull. two related reasons for government that is if, first is unsuccesfull are probably not credible. as needed are deadweight below, there governments' interest to unsuccesfull. The second specify what instance pay means for an it would be necessary it variations demand in By perfomance. or comparison, This Its if susbsidy the reason that is export drive to it if is not be the it is would in the drive relatively easy to to For be unsuccesfull. affect is somewhat hard to consider the possibility that supply true with the taxes will it , the export drive particularly is costs associated Then, ex post to finance the subsidy. promises by that subsidize an industry only will it The this. why still and Spatt (1983) make the Dybvig in tools in random measured export give subsidies contingent on certain export capacity being installed. For the model capacity constructed for export s = where c - p s - considered is here, a subsidy of s per unit of necessary to induce any single firm to produce equals Rr (4) 10- single producer subsidy a With this subsidy induces many firms to enter, industry capacity receive a price of so that firms will [p^(l = in ^ R) c - shjk'" = [p^ . establishing W limited time only. by given to which in the industry is specific industries for a costs of the social The sources of this distortion. must be larger value for S which raises d. Under increasing but raised to objective of so that must verify is Second, built. subsidy. the function Thus, administration d is not only For instance, suppose the government keeping deadweight losses low. each successive doUar of taxation Then, the deadweight loss from progressively bigger of are two obvious requires more taxes and more convex. with the social costs government finance the reasonable assumptions also The resources must be spent that capacity for legitimate exportable production distortionary taxes I the benefits to the There d(S). first is that However, S as well as the cost In particular the administering the subsidy. if the subsidy. by the subsidy the distortions induced the industry. subsidy include the total expenditures on subsidies chooses taxes (5) Note that the subsidy . benefits (4) offer this nations only industry exceed r*^)]k'" - 4 subsidy assume that subsidies giving of period the R(p^ ^ This accords well with the Japanese and its credibility. practice The during given be only Korean K exceed Thus the both periods. p^ - so that profits net of subsidies equal need will this firms will earn rents equal to N: subsidized N p Since breaks even. d is convex. Similarly, if is there are -11- diseconomies os scale administering a subsidy program (because, for in fraud becomes incentive for Instance, the The larger) d becomes convex. by ns k either be given if is it granted of K it may be more assume only that the 1 The . = beneficial so is that local theoreticaUy B subsidy S , that firms more is an increasing function W so that the equal: export concentrate on I K s (6) positive, is can implement in practice. d(S^(K^)) - B Unless ensure firm net of subsidy equal profits of each nW^ to difficult to total social benefits of the subsidy, B^ granted to aU the firms or by is This second alternative . attractive although it is subsidy for an h-country, S total enough firms only to receive the price p Thus if the program larger as promotion the case in is never which nW socially exceeds d(S^(K^)). now turn I low quality goods. a incentives faced by the country to the wUling to export equals s^ = c - p^(l + which exceeds the 1- can ensure production for export by giving It too, However, subsidy. R) s . the s = that produces subsidy that makes individual producers : s^ + R(p^ The net - p^ benefits of susbsidizing (7) exports country are given by: B^ = nW^ - d(s\K^)). (8) in -12- on subsidies the expenditure where s\ K increasing in the capacity that must be susbsidized Second, than W^. S^ S^ exceeds d(s\K*^)) that so s^ additional unit that is exceeds and the function d s Figure in types of countries are shown K export industry started. the figure, there is a range for then, for true for In figure 1 which promotion all positive there is is smaller If reduces B K K if above W is both as in which in even export promotion K', more of positive, is . the reasonable the subsidy W More )). convex, each (between zero and K') K it in at is, quality goods. negative. always a level of K and K" between K' below This however, requires that K' be Otherwise, the maximum feasible value of K makes it in quality optimal for the country that produces high goods but not for the other. nk"*. it under countries that produce high most, socially optimal in is is subsidize the export industry appears socially beneficial to Even K requires units to get the level of is more than as functions of a higher This W There, the benefits for 1. assumption that the 1-country. First, benefits bigger than d(S (K is subsidized reduces B shown graphically is The . be to both countries subsidize the same number of units if importantly, since, This for two reasons. h-country B^ exceed B to the assumed again is worthwhile for the l-country to promote exports. I now come produced on the in to the rationale for countries whose capacity exceeds inability quality of information of goods from is purchasing the particulaly promptness countries newly industrializing broadly to include not only also paying a high price only with compelling when K . to delivery goods This rationale rests know much about the nations. Such lack of one interprets quality the reliability of the final which to will take product but place, the -13flexibility of the suppliers etc. to much other absence of In the accomodate changes information about weU become level of installed capacity might desired design In a useful barometer. particular, in the model presented thus far, as long as only governments of h-countries find industry. Therefore, quality of the goods that their national interest, a from the level of h-countries. forthcoming can K this above K' is are export both informed about the countries can produce and act in above K' separates Governments signal K^ (as the In optimal to promote the it governments if quality, know that the the 1-countries good quality is Spence (1973)) by subsidizing in capacity and customers can thus be assured that only h-countries have the requisite capacity. This leads to two questions. First, reasonable is it to assume that governments are relatively well informed about the quality of the goods producible in their countries? Second, can one expect act in the self interest of their country? important and extremely difficult open for future research. pointed out that and education of since the government more their population is about a the which to the first question governments certainly know skills substantially empirical question answer In This second question employer large motivation and an be level of Also, probably aspiration to left must it outsiders. it is is more about the than do them of knows its country's workers than do foreigners. Note that, while the model has been constructed under the assumption that governments are certain whether their industries produce high or low quality, this results would obtain the probability if is inessential. Indeed, the same governments were simply better informed of being high quality exporters. will about Some governments -14- would have to know this probability to be high while others would have Then, governments who estimate to know to be high would be willing to subsidize larger capacities. it to be low. now I turn to equilibrium values of K . , K discussion formal any value First, of However, as 1-countries from h-countries. nk more slightly a K long as K" K that, is the of above K' separates lower than Vi barely exceeding K' the most natural equilibrium is involves the smallest deadweight loss from subsidies. of this probability since Second, values below K' do not constitute equilibria in this model in the sense if K are not willing to pay p below K', importers is for units exported by countries with installed capacity equal to at K . it This K occurs because for would also subsidize exports only equilibria if many "pooling" K' exceeds nk countries and the 1-countries by countries with p m = ap h , + where a is population is a'. a' if: , , 1 which is K given by: is the the h- that both get the the same so of same received only .1 (l-a)p the proportion of countries that actuaUy supply that the Then, even for a country to receive p only equal indeed these are equilibria; installed capacity of at least Suppose quality goods. which promote the separation This price p in the first period. price p K At these, the capacity of . is governments of 1-countries below K' In addition to these values of countries there are least were paid for these exports. p if all proportion of when h-countries in the minimum in the first period, K high the capacity requirement , is zero, a will -15W'^ = (a'p^ - (1 + words, In other their proportion a' all small is R)p^ + 1- - c) > 0. enough that, or equal to R, the condition that Then, participate, will exceed export ti However, such be will exporting and if a' all if participate, less is than be negative contradicts condition numerous participation unprofitable. the proportion In particular, a'. participate even when they l-countries are sufficiently they make choose to countries will they receive a sufficiently high price. (9). (9) that, if they all In this case, a of l-countries that l-countries are just indifferent between that abstaining from This implies exporting. that a must equal: [c-(l+R)pV[p^-p^] K Note that, as export must important separating raises exporting and indifferent between has implications. equilibrium (with This pooling equilibria. between the two. is K proportion of h-countries and thus not exporting. particular, equal it keeps that l-countries This Indifference means that the Pareto dominates the to K') Therefore, Pareto superiority requires only that for h-countries to do so For a In p (10) so because importers are also indifferent countries prefer the separating nk'"(p^-p"^) d(s\K"'))/[nk"'(p^-p^]. increases, the This rise. + = equilibrium. sufficient condition 5 is : nk'"(p^-pS(l-a) given by A (10) the left > d(S^(K')) hand - side of d(S^(K'")). this inequality is h- . -16- equal to: nW^ - dCS^K"")). inequality can be rewritten as: Thus the nW^ K ' - d(S^(K')) is > dCS^'CK"')) turn, exceeds d(S d(S^(K') which, in On given K*", the right hand side of (11) separating equilibrium Ill is nonpositive. is producers for a Therefore, Pareto superior for sufficiently low succesfull, with become has it export promotion policies commonplace a' become having extoll to When these praises outwards orientation. presumably accompanied come become outwards oriented 7 . are sung by international simplicity of I start 1 consequences study the which wiU be assumed exposition g subsidies to countries that this section In of these policy oriented transfers For with so virtues of the organizations with the capacity for extensive discretionary funding to T. the FORCED EXPORT PROMOTION Countries they of countries must provide a 1- response by their obtain the same larger subsidy to equal hand side so the left (K')) the other hand, since (11) which makes nW level of capacity defined as the (11) is positive. d(S^K'")) - to be equal by analyzing transfers received exclusively by 1-countries. These transfers between the cases in shift the which the B B line ' up by T. line We must meets the x-axis to distinguish the left . -17of both and K" and nk case there B ' is meets line countries find countries wUl Instead, 1- the then continue who receive p transfers wUl when true as long as the transfer to certain units at of receive only as is l-country case twofold. there First all is the This inefficiency is is exactly from the deadweight loss is no level in capacity of order . Thus that Then, unless a devised the only equilibria exporters are paid p p is which equals -n with k form considered of the strictly smaller than is units their export industry more there different signalling mechanism equilibria This the worldwide distinguishes countries with good quality from others. pooling equilibria the in from 1-countries. to distinguish themselves second national may now be In this case Second there forcing h- countries to subsidize the is units subsidized. transfer T. equal to the in the p as allows the country to give a subsidy of national cost. producing the total equal to T Those . negative for positive k. promoting policies loss from export inefficiency no is it K their products. for much capacity subsidize only as national interest even In capacity of a receive to the At this equilibrium only h- subsidize to the point at which between K" In the first doesn't. it Note, however, that selling goods for p interest. s and x-axis optimal it countries long as they K equilibrium with an which the case in will be At these pooling above. in the first period where p h- countries are strictly worse is off. Moreover, as shown above these pooling equilibria are Pareto dominated by the separating equilibrium countries. Then, even if if there are a sufficient number they receive a transfer countries are indifferent between T of 1- for exporting, exporting and not exporting. 1- Thus worldwide losses equal the entire transfers to 1-countries in addition -18to the losses to h-countries. So far considered only have I transfers Obviously countries. then the case in which the the K if B ' equilibrium above K'. Also, is K possible. chosen below K" is above K" only which h- and if it can So, again, in both K" and at the cost of possibility that arises there will be it that the Then instead If, K is receiving the transfer will So while raising ensuring that only h-countries invest is left of nk"*. pooling. h-countries Invest while the others will not. lines meets the x-axis to the right of nk The new the only 1-countries and B maintained be 1- separating the left of meets the x-axis to the right of K" but to the chosen of on effect meets the x-axis to the separating only pooling B^' no and h- countries that receive the transfers. 1- raising have This respectively shifts the B receive transfers of T. nk"' both Suppose then that some h-countries and some equilibrium. of the by received are in realistic case does not apply when transfers are given it they h-countries; to promotion export for more over to the analysis, however, carries The 1-countries. transfers to K has the ability now has the side effect of shutting out of the export market other h-countries. IV A CAVEAT: EXTERNAL ECONOMIES Up to subsidies destroy to a considerably section I point the message countries that engage this want relatively good worse without to off even to the one in is has been that paper export in and equilibrium emphasize that this a very similar model this of promotion may well make h-countries helping 1-countries. only a possibility. section II can be In this Indeed, constructed in -19- which transfers for export promotion occurrs K if are not that destructive. instead of being a variable used to signal is This a level of capacity which simplifies the operation of the export sector. Suppose once while, companies find the the export sector costs. On export sector easier to arrange it are wUling to pay p If export sector the if than smaller is K export because exports must be arranged on an difficult to basis that, for the other hand, trading Thus, exports. while consumers goods, exporting firms receive only all so that p small, is individual sufficiently big, is is it , -p spent on is p transactions once the export sector attains a K size , this transactions cost disappears. Therefore, in all countries, profits to a single exporting firm are given by: TT*^ = (p\l+R)-c)k'" which is capacity of K assumed has been established Then, countries to be positive. to subsidize exports B*^ = nW^ where S - is Now suppose state, B dCSCK*^)) will find it W which in their best once a assumed is interest > the total subsidy needed differ in the distortions positive while possibly due for others K to obtain a capacity of to the it is . caused by the Then, for some countries, those who start from few distortions is are given by to a firm if: that countries same subsidies. system with be negative whUe profits to lack of negative. a tax a welfare In -20- equilibrium, only the former Now a transfer T subsidize exports and therefore export. from the rest of the world to countries unwilling export otherwise has a social cost of only T if the transfer to makes countries just indifferent between exporting and not exporting. true in the model of Klein and Leffler (1981) in which information about the good's actual quality spreads very quickly and the Then firms capable of producing both the future is relatively undiscounted. prefer to produce the high quality good if might low and the high quality good stream of rents associated with high quality the the price is high enough that It must of low quality production. benefits period production exceeds the one high ensuring method of Leffler and (1981) be pointed out that the Klein quality production, namely to permit the price to be quite high, does not work lere since some firms are only capable of producing low quality and wiU thus sell low quality goods in the first period even when the price is high. 2The possibility of this "excess inertia" is shown in FarreU and Saloner (1985b). a discussion of Korean policies. 216 for 3See Balassa (1982) p. 4See Balassa (1982), p. 216 for example. 5This condition is only sufficient because we are neglecting the possible These would benefits in the second period from the separating equilibrium. quality of good the about information equilibrium, accrue if, in the pooling is period that price in so^that the imperfectly transmitted goods is only IThe opposite is below p . 6See for instance IMF (1985) p. 12-13 and Clausen (1986) plO-^^ TIndeed The Economist 3/22/86 reports that World Bank "policy loans" i.e. loans whose purpose is not to fund specific projects but to facilitate the changing of economic policies, didn't exist in 1979 but accounted for 15-17% of new lending in 1985. 21- K^ Figure 1 Net social benefit as a fonction of K the minuTTLim capacity needed to receive P' in the first period , , -22- REFERENCES Bela A. 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