Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Trade Policy and Industrial Development: Lessons from Mexico Eric Verhoogen Columbia University UNU-WIDER/CIEM Conference, Hanoi June 30, 2014 Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Overview I This talk: Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Overview I This talk: I A broad-brush interpretation of role of international trade in the recent development of Mexico. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Overview I This talk: I A broad-brush interpretation of role of international trade in the recent development of Mexico. I Tries to draw some general lessons, including for Vietnam. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Overview I This talk: I A broad-brush interpretation of role of international trade in the recent development of Mexico. I Tries to draw some general lessons, including for Vietnam. I Why Mexico? Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Overview I This talk: I A broad-brush interpretation of role of international trade in the recent development of Mexico. I Tries to draw some general lessons, including for Vietnam. I Why Mexico? I Clearly differs in many ways from Vietnam, but it is illustrative of issues that Vietnam is likely to face in its future growth. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Overview I This talk: I A broad-brush interpretation of role of international trade in the recent development of Mexico. I Tries to draw some general lessons, including for Vietnam. I Why Mexico? I Clearly differs in many ways from Vietnam, but it is illustrative of issues that Vietnam is likely to face in its future growth. I Cautionary tale about liberalization relevant to Vietnam, given 2006 AFTA accession, 2007 WTO accession, recent trade agreements with the U.S., Japan, ASEAN agreements with Korea, India, and pending agreements with the E.U. and Trans-Pacific Partnership. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Mexico’s Disappointing Growth I Between 1985 and 1994, Mexico implemented an ambitious program of reforms, in line with recommendations from international institutions (IMF, World Bank etc.): I Trade liberalization I 1985-87: joined GATT, unilateral reduction of tariff barriers. I 1994: NAFTA, phased out remaining barriers over 15 years. I Privatization of state-owned enterprises I Liberalization of investment regime I General reduction of role of state in economy Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Mexico’s Disappointing Growth I Between 1985 and 1994, Mexico implemented an ambitious program of reforms, in line with recommendations from international institutions (IMF, World Bank etc.): I Trade liberalization I 1985-87: joined GATT, unilateral reduction of tariff barriers. I 1994: NAFTA, phased out remaining barriers over 15 years. I Privatization of state-owned enterprises I Liberalization of investment regime I General reduction of role of state in economy I Advocates of these reforms were confident that rising average incomes would follow. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Mexico’s Disappointing Growth I Between 1985 and 1994, Mexico implemented an ambitious program of reforms, in line with recommendations from international institutions (IMF, World Bank etc.): I Trade liberalization I 1985-87: joined GATT, unilateral reduction of tariff barriers. I 1994: NAFTA, phased out remaining barriers over 15 years. I Privatization of state-owned enterprises I Liberalization of investment regime I General reduction of role of state in economy I Advocates of these reforms were confident that rising average incomes would follow. I But Mexico’s growth performance has been disappointing. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Hanson: Why Isn’t Mexico Rich? Mexico’s Disappointing Growth Performance Conclusion 989 Panel A. Latin America Log per capita GDP (1980 = 0) 1 Mexico Brazil Venezuela Argentina Chile 0.5 0 −0.5 1980 1985 1990 1995 2000 2005 Year Source: Hanson (2010).Asia Panel B. Southeast 0) 1.5 Trade Policy and Industrial Mexico Malaysia Thailand Development Indonesia Philippines Eric Verhoogen −0.5 Introduction Inter- and Intra-Sectoral Resource Shifts 1980 1985 Pattern of Specialization and Innovation 1990 1995 2000 Conclusion 2005 Year Mexico’s Disappointing Growth Performance (cont.) Panel B. Southeast Asia Log per capita GDP (1980 = 0) 1.5 Mexico Malaysia Thailand Indonesia Philippines 1 0.5 0 −0.5 1980 1985 1990 1995 2000 2005 Year Source: Hanson (2010). Figure 1: Economic Growth in Comparison Countries (continued) Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Journal of Economic Literature, Vol. XLVIII (December 2010) 990 Mexico’s Disappointing Growth Performance (cont.) Panel C. Eastern and Central Europe Log per capita GDP (1980 = 0) 0.8 Mexico Hungary Turkey 0.6 Bulgaria Romania 0.4 0.2 0 −0.2 1980 1985 1990 1995 2000 2005 Year Source: Hanson (2010). Figure 1: Economic Growth in Comparison Countries (continued) are insufficient to explain the Mexican case. Because some countries in Latin America have doneIndustrial well in the last decade, Mexico’s perforTrade Policy and Development relative to Asia and Europe, which during the second half of the twentieth century did converge toward U.S. income levels, was dueEric pri-Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Mexico’s Disappointing Growth Performance (cont.) I There are a number of plausible factors that have contributed to the disappointing performance (Hanson, 2010; Kehoe and Ruhl, 2010): I I I I I Monopolies and inefficient regulation (Arias et al., 2010). Underdeveloped credit markets (Haber, 2004). Informality and evasion (Levy, 2008). Corruption and, more recently, violence. ... All of these likely played a role. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Mexico’s Disappointing Growth Performance (cont.) I There are a number of plausible factors that have contributed to the disappointing performance (Hanson, 2010; Kehoe and Ruhl, 2010): I I I I I Monopolies and inefficient regulation (Arias et al., 2010). Underdeveloped credit markets (Haber, 2004). Informality and evasion (Levy, 2008). Corruption and, more recently, violence. ... All of these likely played a role. I Here I would like to focus on the role of trade — in particular, links between pattern of specialization and innovation. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Plan of Talk I Introduction I Inter- and Intra-Sectoral Resource Shifts I Pattern of Specialization and Innovation I Conclusion Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion The Empirical Challenge I Evaluating the effect of trade policy in Mexico is difficult because other things changed at the same time. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion The Empirical Challenge I Evaluating the effect of trade policy in Mexico is difficult because other things changed at the same time. I NAFTA was implemented in January 1994, and was followed by peso crisis in Dec. 1994. I As Krueger (2000) and others have noted, devaluation was much larger (50% nominal devaluation) than tariff changes (10% reductions in Mexico, 3-5% in US). Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion The Empirical Challenge I Evaluating the effect of trade policy in Mexico is difficult because other things changed at the same time. I NAFTA was implemented in January 1994, and was followed by peso crisis in Dec. 1994. I As Krueger (2000) and others have noted, devaluation was much larger (50% nominal devaluation) than tariff changes (10% reductions in Mexico, 3-5% in US). I There may also have been lagging effects of the mid-1980s liberalization. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion The Empirical Challenge I Evaluating the effect of trade policy in Mexico is difficult because other things changed at the same time. I NAFTA was implemented in January 1994, and was followed by peso crisis in Dec. 1994. I As Krueger (2000) and others have noted, devaluation was much larger (50% nominal devaluation) than tariff changes (10% reductions in Mexico, 3-5% in US). I There may also have been lagging effects of the mid-1980s liberalization. I Here I do not try to separate these factors. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion 2 Employment Growth vs. Skill Intensity, 1988-1998 Apparel & textile prod. Transportation equip. −.5 0 .5 1 Other 4−digit NAICS industries −1.5 −1 change in log(employment), 1988−1998 1.5 Electrical/electronic prod. 0 .1 .2 .3 .4 .5 .6 Share >=12 yrs education (in large plants), 1998 Notes: Data on employment growth are from the INEGI Economic Censuses from 1989 and 1999 (containing information from previous year). Data on schooling are from 1999 ENESTyC. Each symbol represents a 4-digit industry in the North American Industrial Classification System (NAICS). The size of the symbols reflect employment in the industry in 1998. The fitted regression line is weighted by employment in 1998. See Figure A1 of Verhoogen (2008). Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion 2 Employment Growth vs. Capital Intensity, 1988-1998 Apparel & textile prod. Transportation equip. −.5 0 .5 1 Other 4−digit NAICS industries −1.5 −1 change in log(employment), 1988−1998 1.5 Electrical/electronic prod. 2 3 4 5 6 7 8 log capital−labor ratio, 1998 Notes: Data on employment growth and capital-labor ratio are from the INEGI Economic Censuses from 1989 and 1999 (containing information from previous year). Each symbol represents a 4-digit industry in the North American Industrial Classification System (NAICS). The size of the symbols reflect employment in the industry in 1998. The fitted regression line is weighted by employment in 1998. A similar graph (using a different industry classification) appeared as Figure A2 of Verhoogen (2008). Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion 2 Employment Growth vs. Skill Intensity, 1998-2008 Apparel & textile prod. Transportation equip. −.5 0 .5 1 Other 4−digit NAICS industries −1.5 −1 change in log(employment), 1998−2008 1.5 Electrical/electronic prod. 0 .1 .2 .3 .4 .5 .6 Share >=12 yrs education (in large plants), 1998 Notes: Data on employment growth are from the INEGI Economic Censuses from 1989 and 1999 (containing information from previous year). Data on schooling are from 1999 ENESTyC. Each symbol represents a 4-digit industry in the North American Industrial Classification System (NAICS). The size of the symbols reflect employment in the industry in 1998. The fitted regression line is weighted by employment in 1998. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion 2 Employment Growth vs. Capital Intensity, 1998-2008 Apparel & textile prod. Transportation equip. −.5 0 .5 1 Other 4−digit NAICS industries −1.5 −1 change in log(employment), 1998−2008 1.5 Electrical/electronic prod. 2 3 4 5 6 7 8 log capital−labor ratio, 1998 Notes: Data on employment growth are from the INEGI Economic Censuses from 1989 and 1999 (containing information from previous year). Data on schooling are from 1999 ENESTyC. Each symbol represents a 4-digit industry in the North American Industrial Classification System (NAICS). The size of the symbols reflect employment in the industry in 1998. The fitted regression line is weighted by employment in 1998. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Maquiladora and Total Industry Employment Employment (thousands) 200 400 Employment (thousands) 200 400 600 Electrical and Electronic Equipment 600 Apparel all NAICS 315 1995 2000 2005 2010 All NAICS 334 and 335 maquiladoras 0 0 maquiladoras 1990 1990 1995 2000 2005 2010 Employment (thousands) 200 400 600 Transportation Equipment All NAICS 336 0 maquiladoras 1990 1995 2000 2005 2010 Notes: Maquiladora employment from EMIME for 1988-2006; total industry employment from Economic Censuses of 1989, 1994, 1999, 2004, and 2009. Apparel and textile products (maquila group 2) mapped to NAICS 315 (apparel manufacturing); transportation equipment (maquila group 6) to NAICS 336 (transportation equipment manufacturing); electrical and electronic equipment (maquila groups 8 and 9) to NAICS 334 and 335 (computer and electronic equipment; and electrical equipment, appliances, and components). Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Means by Sub-Sector: Apparel, Elect. & Trans. Equip. non-maquiladoras Employment non-exporters (1) exporters (2) maquiladoras (3) 315.43 (8.23) 0.08 (0.01) 254.26 (19.11) 0.28 (0.01) 70.18 (0.56) 7.86 (0.04) 3.59 (0.06) 7.45 (0.14) 41.47 (1.22) 6.25 (0.09) 438.97 (11.07) 30.81 (0.72) 0.29 (0.01) 309.07 (14.45) 0.32 (0.01) 70.75 (0.46) 8.15 (0.04) 3.92 (0.05) 9.32 (0.15) 40.54 (1.06) 6.59 (0.08) 969.67 (30.02) 96.52 (0.63) 0.84 (0.02) 54.87 (7.18) 0.19 (0.01) 83.04 (0.63) 7.37 (0.06) 3.83 (0.10) 9.33 (0.27) 72.37 (2.66) 3.53 (0.08) 1423 1774 557 Export percentage of sales Foreign ownership indicator Capital-labor ratio Share with >= 12 years schooling Percentage blue-collar Years of schooling, blue-collar Blue-collar hourly wage White-collar hourly wage Turnover rate Tenure (years) N Notes: Standard errors of means in parentheses. Sample is plants with ≥ 100 employees in 1999 ENESTyC. Capital-labor ratio measured in thousands of 1998 pesos; blue-collar and white-collar hourly wage in 1998 pesos. Average 1998 nominal exchange rate: 9.1 pesos/dollar. Apparel Transport Equip. Electronics Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion The Story So Far I From 1988-1998, manufacturing sector specialized in less capital- and skill-intensive activities, both across sectors and within sectors (i.e. to maquilas). Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion The Story So Far I From 1988-1998, manufacturing sector specialized in less capital- and skill-intensive activities, both across sectors and within sectors (i.e. to maquilas). I From 1998-2008, these sectors/subsectors tended to stagnate. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion The Story So Far I From 1988-1998, manufacturing sector specialized in less capital- and skill-intensive activities, both across sectors and within sectors (i.e. to maquilas). I From 1998-2008, these sectors/subsectors tended to stagnate. I Researchers have also documented within-industry pressures to upgrade (Lopez Cordova, 2003; Verhoogen, 2008). I But first-order effect of liberalization seems to have been the standard Heckscher-Ohlin effect. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Role of China I A common explanation: Mexico had bad luck. I Just as Mexico was poised to grow, China entered. I China had similar pattern of specialization in exports to U.S. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Role of China I A common explanation: Mexico had bad luck. I Just as Mexico was poised to grow, China entered. I China had similar pattern of specialization in exports to U.S. I There is definitely evidence to support the China story: I Utar and Torres Ruiz (2013). I Kumler (2014): applies approach of Autor, Dorn and Hanson (2013) in Mexico. I Lopez Cordova, Micco and Molina (2008), Hanson and Robertson (2010), Hsieh and Ossa (2011). China-Mexico export similarity Trade Policy and Industrial Development US import shares Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Role of China I A common explanation: Mexico had bad luck. I Just as Mexico was poised to grow, China entered. I China had similar pattern of specialization in exports to U.S. I There is definitely evidence to support the China story: I Utar and Torres Ruiz (2013). I Kumler (2014): applies approach of Autor, Dorn and Hanson (2013) in Mexico. I Lopez Cordova, Micco and Molina (2008), Hanson and Robertson (2010), Hsieh and Ossa (2011). China-Mexico export similarity US import shares I But here I would like to argue that China is not the whole story, that Mexico would have had problems even if China had not entered. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Pattern of Specialization and Innovation I Old-fashioned idea (Prebisch, 1950; Matsuyama, 1992; Harrison and Rodrı́guez-Clare, 2010): I Different activities are associated with different inherent rates of innovation, productivity growth. I Liberalization changes to pattern of specialization, may lead to specialization in non-dynamic activities. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion R&D Measure, ENESTyC 1999 I Survey asked: “Since 1997, has the establishment undertaken R&D?” I (If yes) “What did the R&D principally consist of?” “Design of new products” “Process improvements” “Product quality improvements” “Design/Improvement/Manufacture of machinery or equipment” I “Other” I I I I I N.B.: This is a broad, inclusive definition of R&D, not just patents. I Not perfect, but not bad as a first pass. I Code as 0/1. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion .5 Share of plants performing R&D, 1998 1 R&D Intensity vs Skill Intensity, 1998 Apparel & textile prod. Transportation equip. Electrical/electronic prod. 0 Other 4−digit NAICS industries 0 .1 .2 .3 .4 .5 .6 Share >= 12 years schooling, 1998 Notes: Size of plotting symbols reflects employment in industry. The fitted regression line is weighted by employment. The estimated slope is 0.53 with standard error 0.13; the R2 is 0.16. Industry-level averages are for large plants (≥ 100 employees). Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion .5 Share of plants performing R&D, 1998 1 R&D Intensity vs Capital Intensity, 1998 Apparel & textile prod. Transportation equip. Electrical/electronic prod. 0 Other 4−digit NAICS industries 2 3 4 5 6 7 8 log capital−labor ratio, 1998 Notes: Size of plotting symbols reflects employment in industry. The fitted regression line is weighted by employment. The estimated slope is 0.05 with standard error 0.01; the R2 is 0.14. Industry-level averages are for large plants (≥ 100 employees). Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion R&D Intensity by Sector non-maquiladoras All manufacturing Apparel Electrical and Electronic Products Transportation Equipment non-exporters (1) exporters (2) maquiladoras (3) 0.36 (0.01) 0.19 (0.03) 0.35 (0.07) 0.40 (0.07) 0.50 (0.01) 0.33 (0.04) 0.54 (0.04) 0.62 (0.04) 0.41 (0.02) 0.34 (0.05) 0.45 (0.03) 0.54 (0.10) Source: ENESTyC 1999. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Alternative Innovation Measure I: Patents per Capita INNOVATION IN MEXICO: NAFTA IS NOT ENOUGH 251 Figure 6.2 Patents per Million Workers, 1960–2000 4.5 4.0 3.5 3.0 2.5 2.0 1.5 1.0 0 19 80 s 19 90 –9 4 19 95 –2 00 0 19 70 s 19 60 s 94 19 95 –2 00 0 19 80 s 19 90 – 19 70 s 19 60 s 80 70 60 50 40 30 20 10 0 East Asia Latin America and the Caribbean Mexico Republic of Korea 120 450 400 350 300 250 200 150 100 50 0 100 80 60 40 20 United States Canada 19 90 –9 4 19 95 –2 00 0 19 80 s 19 70 s 19 60 s 19 90 –9 4 19 95 –2 00 0 19 80 s 19 70 s 19 60 s 0 High-income countries Source: U.S. Office of Patents and Trademarks. Notes: From Lederman, Maloney and Servén (2005), based on data from the U.S. Office of Patents and Trademarks. global and long time coverage, and especially because it is commonly understood that the United States offers perhaps the most advanced lev- Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Alternative Innovation Measure II: R&D Spending/GDP Country R&D spending/GDP (%) Mexico Chile China Korea U.S. Canada .38 .65 .65 2.34 2.59 1.76 Notes: Data from World Bank World Development Indicators for 1998. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Summary I Integration led Mexico to specialize in less capital- and skill-intensive activities, both across and within sectors. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Summary I Integration led Mexico to specialize in less capital- and skill-intensive activities, both across and within sectors. I These sectors that Mexico tended to be less innovative. I This did not have to be true. But the correlation appears quite robust. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Summary I Integration led Mexico to specialize in less capital- and skill-intensive activities, both across and within sectors. I These sectors that Mexico tended to be less innovative. I This did not have to be true. But the correlation appears quite robust. I The sectoral shifts thus tended to dampen the overall rate of innovation in the economy. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Summary I Integration led Mexico to specialize in less capital- and skill-intensive activities, both across and within sectors. I These sectors that Mexico tended to be less innovative. I This did not have to be true. But the correlation appears quite robust. I The sectoral shifts thus tended to dampen the overall rate of innovation in the economy. I What if China had not entered? Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Summary I Integration led Mexico to specialize in less capital- and skill-intensive activities, both across and within sectors. I These sectors that Mexico tended to be less innovative. I This did not have to be true. But the correlation appears quite robust. I The sectoral shifts thus tended to dampen the overall rate of innovation in the economy. I What if China had not entered? I We don’t observe the counterfactual, but my sense is that there would always be another country moving up the product ladder — Malaysia, Thailand, Indonesia, ... Vietnam. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion General Lessons I More research is needed, needless to say. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion General Lessons I More research is needed, needless to say. I But patterns suggest that there may be a trade-off between static allocative efficiency and long-term productivity growth. I Liberalization alone may not to be enough to bring about sustained growth. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion General Lessons I More research is needed, needless to say. I But patterns suggest that there may be a trade-off between static allocative efficiency and long-term productivity growth. I Liberalization alone may not to be enough to bring about sustained growth. I There is a strong case for interventions to promote the sorts of activities that generate innovation and productivity growth, both across and within sectors. I Argument relies on the idea that innovation generates positive externalities. (With co-authors, I am examining such spillovers among soccer-ball producers in Pakistan (Atkin et al., 2014).) Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Caveats 1. Such interventions need not be at the border, in the form of trade policy. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Caveats 1. Such interventions need not be at the border, in the form of trade policy. I Well-established principle: better to address the market failure at the source. In this case, by subsidizing innovative activities. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Caveats 1. Such interventions need not be at the border, in the form of trade policy. I Well-established principle: better to address the market failure at the source. In this case, by subsidizing innovative activities. I WTO limits ability to conduct industrial policy through taxes, restrictions at the border in any case. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Caveats 1. Such interventions need not be at the border, in the form of trade policy. I Well-established principle: better to address the market failure at the source. In this case, by subsidizing innovative activities. I WTO limits ability to conduct industrial policy through taxes, restrictions at the border in any case. 2. Government officials have no special knowledge about which sectors/firms/ideas/technologies are going to be successful in the future. I Indeed, even the best-intentioned officials are often less well informed than businesspeople in the relevant industry. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Broad-Based Policies I Common approach is to focus on policies that provide broad-based (sometimes called “horizontal” (Lederman and Maloney, 2012)) support for innovative activities: Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Broad-Based Policies I Common approach is to focus on policies that provide broad-based (sometimes called “horizontal” (Lederman and Maloney, 2012)) support for innovative activities: I Infrastructure Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Broad-Based Policies I Common approach is to focus on policies that provide broad-based (sometimes called “horizontal” (Lederman and Maloney, 2012)) support for innovative activities: I Infrastructure I Technical/vocational education Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Broad-Based Policies I Common approach is to focus on policies that provide broad-based (sometimes called “horizontal” (Lederman and Maloney, 2012)) support for innovative activities: I Infrastructure I Technical/vocational education I Removal of restrictions on imports of high-quality/high-tech imported inputs. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Broad-Based Policies I Common approach is to focus on policies that provide broad-based (sometimes called “horizontal” (Lederman and Maloney, 2012)) support for innovative activities: I Infrastructure I Technical/vocational education I Removal of restrictions on imports of high-quality/high-tech imported inputs. I A number of policies along these lines are already in place in Vietnam. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Targeted Policies I Targeted policies are inherently more subject to corruption, capture, plain old mistargeting. But if implemented well they can be very effective. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Targeted Policies I Targeted policies are inherently more subject to corruption, capture, plain old mistargeting. But if implemented well they can be very effective. I Good examples: Law on Corporate Income Tax (2009) and Law 31 (2014) provide preferential tax treatment for investments in: I I I I I I I I high technology scientific research technology development computer software environmental protection high-grade steel energy-saving products machinery and equipment for primary industries Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Targeted Policies (cont.) I Mexican experience suggests that such policies are well-advised, pressures from market “fundamentalists” notwithstanding. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Targeted Policies (cont.) I Mexican experience suggests that such policies are well-advised, pressures from market “fundamentalists” notwithstanding. I This is not a blanket endorsement of intervention. Many heavy-handed interventions produce more distortions, rent-seeking than growth. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Targeted Policies (cont.) I Mexican experience suggests that such policies are well-advised, pressures from market “fundamentalists” notwithstanding. I This is not a blanket endorsement of intervention. Many heavy-handed interventions produce more distortions, rent-seeking than growth. I But recent liberalization of trade policy makes it even more crucial to find smart ways promote innovative activities. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Targeted Policies (cont.) I Mexican experience suggests that such policies are well-advised, pressures from market “fundamentalists” notwithstanding. I This is not a blanket endorsement of intervention. Many heavy-handed interventions produce more distortions, rent-seeking than growth. I But recent liberalization of trade policy makes it even more crucial to find smart ways promote innovative activities. I Clean, rigorous evidence on effects (positive or negative) of industrial policies is relatively scarce. We need more research! Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Idea Worth Exploring: Matching Grants I Currently, main instrument of industrial policy in Vietnam appears to be favorable tax treatment for pre-selected sectors. I Presumes knowledge by policy-makers about promising sectors. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Idea Worth Exploring: Matching Grants I Currently, main instrument of industrial policy in Vietnam appears to be favorable tax treatment for pre-selected sectors. I Presumes knowledge by policy-makers about promising sectors. I Possible alternative: Matching grants. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Idea Worth Exploring: Matching Grants I Currently, main instrument of industrial policy in Vietnam appears to be favorable tax treatment for pre-selected sectors. I Presumes knowledge by policy-makers about promising sectors. I Possible alternative: Matching grants. I Firms propose innovative projects, aimed at increasing exports. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Idea Worth Exploring: Matching Grants I Currently, main instrument of industrial policy in Vietnam appears to be favorable tax treatment for pre-selected sectors. I Presumes knowledge by policy-makers about promising sectors. I Possible alternative: Matching grants. I Firms propose innovative projects, aimed at increasing exports. I External panel from industry, academia select promising ones. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Idea Worth Exploring: Matching Grants I Currently, main instrument of industrial policy in Vietnam appears to be favorable tax treatment for pre-selected sectors. I Presumes knowledge by policy-makers about promising sectors. I Possible alternative: Matching grants. I Firms propose innovative projects, aimed at increasing exports. I External panel from industry, academia select promising ones. I Fund offers co-financing. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Idea Worth Exploring: Matching Grants I Currently, main instrument of industrial policy in Vietnam appears to be favorable tax treatment for pre-selected sectors. I Presumes knowledge by policy-makers about promising sectors. I Possible alternative: Matching grants. I I I I Firms propose innovative projects, aimed at increasing exports. External panel from industry, academia select promising ones. Fund offers co-financing. Exports used as target for evaluation of success of grants, basis for future grants to same firm. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Idea Worth Exploring: Matching Grants I Currently, main instrument of industrial policy in Vietnam appears to be favorable tax treatment for pre-selected sectors. I Presumes knowledge by policy-makers about promising sectors. I Possible alternative: Matching grants. I I I I Firms propose innovative projects, aimed at increasing exports. External panel from industry, academia select promising ones. Fund offers co-financing. Exports used as target for evaluation of success of grants, basis for future grants to same firm. I Matching grants place less ex-ante burden on knowledge of policy-makers, perhaps at greater risk of capture, corruption. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Idea Worth Exploring: Matching Grants (cont.) I Caveat: Not all projects are going to succeed. I Government needs to think a bit more like a venture capitalist. One successful project out of 10 or 20 can justify program. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Idea Worth Exploring: Matching Grants (cont.) I Caveat: Not all projects are going to succeed. I Government needs to think a bit more like a venture capitalist. One successful project out of 10 or 20 can justify program. I In Pakistan, with co-authors I have been working with the government of the province of Punjab to develop an Innovation Development Fund along these lines. Stay tuned for results. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion References I Arias, Javier, Oliver Azuara, Pedro Bernal, James J. Heckman, and Cajeme Villarreal, “Policies To Promote Growth and Economic Efficiency in Mexico,” 2010. NBER working paper no. 16554. Atkin, David, Azam Chaudhry, Shamyla Chaudry, Amit K. Khandelwal, and Eric Verhoogen, “Organizational Barriers to Technology Adoption: Evidence from Soccer-Ball Producers in Pakistan,” 2014. Mimeo, Columbia University. Autor, David H., David Dorn, and Gordon H. Hanson, “The China Syndrome: Local Labor Market Effects of Import Competition in the United States,” American Economic Review, 2013, 103 (6), 2121–68. Devlin, Robert, Antoni Estevadeordal, and Andres Rodriguez-Clare, The Emergence of China: Challenges and Opportunities for Latin America and the Carribean, Harvard University Press, 2006. Haber, Stephen, “Why Institutions Matter: Banking and Economic Growth in Mexico,” 2004. Stanford Center for International Development working paper no. 234. Hanson, Gordon H., “Why Isn’t Mexico Rich?.,” Journal of Economic Literature, 2010, 48 (4), 987 – 1004. and Raymond Robertson, “China and the Manufacturing Exports of Other Developing Countries,” in “China’s Growing Role in World Trade,” NBER Conference Report series. Chicago and London: University of Chicago Press, 2010, pp. 137 – 159. Harrison, Ann and Andrés Rodrı́guez-Clare, “Trade, Foreign Investment, and Industrial Policy in Developing Countries,” in Dani Rodrik and Mark Rosenzweig, eds., Handbook of Development Economics, vol. 5, North-Holland, 2010, pp. 4039–4214. Hsieh, Chang-Tai and Ralph Ossa, “A Global View of Productivity Growth in China,” 2011. NBER working paper no. 16778. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion References II Kehoe, Timothy J. and Kim J. Ruhl, “Why Have Economic Reforms in Mexico Not Generated Growth?.,” Journal of Economic Literature, 2010, 48 (4), 1005 – 1027. Krueger, Anne, “NAFTA’s Effects: A Preliminary Assessment,” World Economy, June 2000, 23 (6), 761–75. Kumler, Todd, “Chinese Competition and Mexican Labor Markets,” 2014. Unpub. paper, Columbia University. Lederman, Daniel and William Maloney, Does What You Export Matter? In Search of Empirical Guidance for Industrial Policies, Washington DC: The World Bank, 2012. , , and Luis Servén, Lessons from NAFTA for Latin America and the Caribbean, Stanford CA: Stanford University Press, 2005. Levy, Santiago, Good Intentions, Bad Outcomes: Social Policy, Informality and Economic Growth in Mexico, Brookings Institution Press, Washington D.C., 2008. Lopez Cordova, Ernesto, “NAFTA and Manufacturing Productivity in Mexico,” Economia: Journal of the Latin American and Caribbean Economic Association, 2003, 4 (1), 55 – 88. , Alejandro Micco, and Danielken Molina, “How Sensitive Are Latin American Exports to Chinese Competition in the U.S. Market?,” Economia: Journal of the Latin American and Caribbean Economic Association, 2008, 8 (2), 117 –. Matsuyama, Kiminori, “Agricultural Productivity, Comparative Advantage, and Economic Growth,” Journal of Economic Theory, 1992, 58. Prebisch, Raul, “The Economic Development of Latin America and its Principal Problems,” 1950. New York: United Nations, Reprinted in Economic Bulletin for Latin America in 1962. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion References III Utar, Hale and Luis B. Torres Ruiz, “International Competition and Industrial Evolution: Evidence from the Impact of Chinese Competition on Mexican Maquiladoras,” Journal of Development Economics, 2013, 105, 267 – 287. Verhoogen, Eric, “Trade, Quality Upgrading and Wage Inequality in the Mexican Manufacturing Sector,” Quarterly Journal of Economics, 2008, 123 (2), 489–530. Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Trade Policy and Industrial Development Pattern of Specialization and Innovation Conclusion Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Means by Sub-Sector: Apparel non-maquiladoras Employment non-exporters (1) exporters (2) maquiladoras (3) 260.19 (17.90) 0.02 (0.01) 64.96 (29.22) 0.15 (0.02) 84.66 (1.62) 7.25 (0.16) 2.34 (0.13) 5.50 (0.44) 55.17 (4.51) 4.91 (0.31) 460.66 (39.51) 46.93 (3.53) 0.05 (0.02) 48.38 (8.87) 0.18 (0.02) 82.91 (1.46) 7.40 (0.14) 2.43 (0.11) 6.38 (0.55) 60.19 (5.44) 4.45 (0.29) 813.88 (57.79) 97.40 (1.13) 0.60 (0.05) 28.90 (7.56) 0.14 (0.01) 88.48 (1.18) 7.21 (0.14) 3.03 (0.17) 6.84 (0.50) 60.20 (4.90) 3.29 (0.16) 112 105 111 Export percentage of sales Foreign ownership indicator Capital-labor ratio Share with >= 12 years schooling Percentage blue-collar Years of schooling, blue-collar Blue-collar hourly wage White-collar hourly wage Turnover rate Tenure (years) N Notes: Standard errors of means in parentheses. Sample is plants with ≥ 100 employees in 1999 ENESTyC. Capital-labor ratio measured in thousands of 1998 pesos; blue-collar and white-collar hourly wage in 1998 pesos. Average 1998 nominal exchange rate: 9.1 pesos/dollar. Return Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Means by Sub-Sector: Transportation Equipment non-maquiladoras Employment non-exporters (1) exporters (2) maquiladoras (3) 344.24 (46.90) 0.28 (0.07) 212.92 (90.57) 0.27 (0.02) 75.35 (1.89) 7.79 (0.19) 3.55 (0.26) 7.24 (0.61) 45.99 (7.59) 5.37 (0.34) 637.01 (52.91) 41.32 (2.68) 0.49 (0.04) 294.49 (46.77) 0.34 (0.02) 73.40 (1.01) 8.60 (0.12) 4.73 (0.22) 11.17 (0.52) 33.11 (3.18) 6.88 (0.28) 1342.07 (82.97) 96.33 (1.28) 0.97 (0.02) 57.30 (22.49) 0.20 (0.01) 84.29 (1.48) 7.43 (0.14) 3.64 (0.19) 9.81 (0.65) 69.47 (6.74) 3.74 (0.20) 46 141 92 Export percentage of sales Foreign ownership indicator Capital-labor ratio Share with >= 12 years schooling Percentage blue-collar Years of schooling, blue-collar Blue-collar hourly wage White-collar hourly wage Turnover rate Tenure (years) N Notes: Standard errors of means in parentheses. Sample is plants with ≥ 100 employees in 1999 ENESTyC. Capital-labor ratio measured in thousands of 1998 pesos; blue-collar and white-collar hourly wage in 1998 pesos. Average 1998 nominal exchange rate: 9.1 pesos/dollar. Return Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation Conclusion Means by Sub-Sector: Electrical/Electronic Equipment non-maquiladoras Employment non-exporters (1) exporters (2) maquiladoras (3) 334.83 (105.70) 0.25 (0.09) 132.03 (74.50) 0.29 (0.04) 73.35 (3.56) 8.03 (0.27) 3.04 (0.25) 8.74 (1.00) 39.68 (5.52) 6.18 (0.64) 585.75 (56.59) 39.94 (3.33) 0.52 (0.05) 223.10 (26.16) 0.31 (0.02) 71.88 (1.57) 8.52 (0.12) 3.84 (0.17) 10.17 (0.53) 41.19 (4.09) 6.21 (0.29) 1081.90 (51.35) 98.24 (0.78) 0.92 (0.02) 68.35 (14.69) 0.22 (0.01) 80.79 (1.06) 7.54 (0.09) 4.15 (0.17) 10.82 (0.48) 73.60 (4.56) 3.50 (0.12) 24 109 191 Export percentage of sales Foreign ownership indicator Capital-labor ratio Share with >= 12 years schooling Percentage blue-collar Years of schooling, blue-collar Blue-collar hourly wage White-collar hourly wage Turnover rate Tenure (years) N Notes: Standard errors of means in parentheses. Sample is plants with ≥ 100 employees in 1999 ENESTyC. Capital-labor ratio measured in thousands of 1998 pesos; blue-collar and white-collar hourly wage in 1998 pesos. Average 1998 nominal exchange rate: 9.1 pesos/dollar. Return Trade Policy and Industrial Development Eric Verhoogen Introduction Inter- and Intra-Sectoral Resource Shifts Pattern of Specialization and Innovation US Import Shares fromHanson: China, Mexico Why Isn’t Mexico Rich? Conclusion 1001 0.1 Mexico China 0.08 0.06 0.04 0.02 1990 1992 1994 1996 1998 2000 2002 2004 2006 2008 Year Figure 2: Share of U.S. Manufacturing Imports Source: Hanson (2010). Return comparative advantage in another third of its products (including automobiles and auto parts, industrial machinery, and ­beverages). Trade Policy and Industrial Development (2010) take a more theoretical approach, introducing Ricardian productivity differences into a Marc J. Melitz (2003) model Eric Verhoogen The increasing similarity between the Chinese and Latin America export baskets is not unlike the Introductiongrowth inInterand Intra-Sectoral Resource Shiftsexcluded) Pattern ofAmerica. Specialization the similarity between East Asia (China and Latin Figureand 5.2 Innovation shows the Conclusion ESI values between selected Latin American countries and regions and East Asia. The similarity of exports between Latin America (particularly Brazil and Mexico) and East Asian economies was relatively pronounced in the early-1990s; this similarity has increased during the same period, particularly for Mexico and Latin America as a whole.6 Export Similarity between Mexico and China Figure 5.2 Export Similarity between Selected Latin American Countries and East Asia in the US Market, 1992-2002 45 40 35 Percent 30 25 20 15 10 5 0 Latin America Argentina 1992 Brazil Chile 1995 Colombia 2000 Mexico Central America 2002 Source: IDB-INT calculations based on UN/Comtrade data. Within manufacturing product categories, moreover, China’s export prices (measured in unit values) are generally lower and thanRodriguez-Clare the prices received by other developing economies in Latin America Source: Devlin, Estevadeordal (2006). and Asia. The premium received by those countries over China is highest in machinery and lowest in Return apparel. One explanation for this differential is that products from those regions offer higher quality or have more attributes than products from China, thereby raising their value. This would be consistent with differences in comparative advantage: countries that are relatively abundant in human Trade Policyand andphysical Industrial Development capital can improve quality or add product features. A competing explanation is that the Eric Verhoogen