THE Advancing Opportunity, HAMILTON Prosperity and Growth PROJECT STRATEGY PAPER J U LY 2 0 0 6 Peter Orszag Michael Deich Growth, Opportunity, and Prosperity in a Globalizing Economy The Brookings Institution The Hamilton Project seeks to advance America’s promise of opportunity, prosperity, and growth. The Project’s economic strategy reflects a judgment that long-term prosperity is best achieved by making economic growth broad-based, by enhancing individual economic security, and by embracing a role for effective government in making needed public investments. Our strategy—strikingly different from the theories driving current economic policy—calls for fiscal discipline and for increased public investment in key growth- enhancing areas. The Project will put forward innovative policy ideas from leading economic thinkers throughout the United States—ideas based on experience and evidence, not ideology and doctrine—to introduce new, sometimes controversial, policy options into the national debate with the goal of improving our country’s economic policy. The Project is named after Alexander Hamilton, the nation’s first treasury secretary, who laid the foundation for the modern American economy. Consistent with the guiding principles of the Project, Hamilton stood for sound fiscal policy, believed that broad-based opportunity for advancement would drive American economic growth, and recognized that “prudent aids and encouragements on the part of government” are necessary to enhance and guide market forces. THE Advancing Opportunity, HAMILTON Prosperity and Growth PROJECT THE HAMILTON PROJECT Growth, Opportunity, and Prosperity in a Globalizing Economy Peter Orszag Michael Deich The Brookings Institution J U LY 2 0 0 6 GROWTH, OPPORTUNITY, AND PROSPERITY IN A GLOBALIZING ECONOMY The views expressed in this strategy paper are those of the authors and are not necessarily those of The Hamilton Project Advisory Council or the trustees, officers, or staff members of the Brookings Institution. Copyright © 2006 The Brookings Institution 2 THE HAMILTON PROJECT | THE BROOKINGS INSTITUTION GROWTH, OPPORTUNITY, AND PROSPERITY IN A GLOBALIZING ECONOMY Introduction nternational trade presents our nation with a com- also sharing more broadly both the benefits and costs of plex and growing challenge. On the one hand, the trade. Not surprisingly, given the similarities between Iglobal system of open trade has brought substantial trade and other forces contributing to creative destruc- and widespread benefits to the U.S. economy. On the tion, this approach to trade is consistent with The Hamil- other hand, trade has led to dislocation in certain in- ton Project’s overall economic strategy of embracing the dustries and has introduced new risks and uncertainties dynamism of a modern economy supported by effective into the lives of many American workers. Achieving an government programs that spread the benefits of growth equitable distribution of the benefits and costs of trade more broadly. Indeed, the specific policy steps needed will require strong, effective government policies. The to raise overall economic productivity and achieve more need for such policies will only grow more urgent, as broad-based economic growth—steps such as improving nations like China and India become increasingly domi- education, investing in research, and improving the social nant forces in the world economy. safety net—are the same, albeit perhaps more urgent, in a global context than they are in a purely domestic one. Trade’s pattern of widespread economic benefits and Thus, rather than constructing programs designed to as- concentrated harm mirrors the broader process of “cre- sist only those workers displaced specifically by trade, ative destruction” of a dynamic economy. Indeed, tech- the government should build broad-based and market- nological advances that produce overall economic gains friendly forms of protection to help families experienc- but dislocate workers in specific sectors are very similar ing economic hardship for any number of reasons. in effect to trade expansions. The invention of the au- tomobile, for example, not only significantly reduced For the trade philosophy discussed here to be fully real- transportation costs and thus raised overall economic ized, the nation must take seriously the need to invest productivity, but it also displaced a variety of firms and in education, basic scientific research, greater economic workers associated with a transportation sector that was security for households, a world-class infrastructure, and based on horses. effective government. To help advance this approach, The Hamilton Project will continue to release innova- This strategy paper articulates a philosophy of embrac- tive policy ideas—based on experience and evidence, ing international competition while investing in work- not ideology and doctrine—to restore broad-based eco- ers and market-friendly insurance. The underlying goal nomic growth and achieve a more inclusive distribution of this philosophy is to boost overall productivity while of the benefits and costs of trade. WWW.HAMILTONPROJECT.ORG | JULY 2006 3 GROWTH, OPPORTUNITY, AND PROSPERITY IN A GLOBALIZING ECONOMY The Changing Nature of International Trade he U.S. economy has become increasingly inte- new low-priced goods and services, and constrains grated with the economy of the rest of the world price markups on existing goods and services. As Tover the past 20 years. The economy’s trade ex- the Council of Economic Advisers notes, “there posure is commonly measured by the sum of exports and is now ample evidence across many countries that imports as a share of GDP. As shown in Figure 1, the greater trade openness and the resulting expo- U.S. economy has become increasingly open as trade has sure to foreign competition reduces the ability of risen relative to GDP. In 2005, the sum of exports and a country’s firms to charge high markups above imports amounted to more than 25 percent of GDP. production costs.… At the detailed product lev- el, many studies have linked lower prices and/or This open trade has created a variety of economic price-cost markups to measures of trade openness advantages—through the introduction of technologi- such as tariff rates.”1 cal innovations from other countries, the opportunity for specialization arising from different cost structures in different countries (the so-called comparative ad- 1. The White House, Economic Report of the President (Washington, DC: vantage), the ability of firms to capture economies of U.S. Government Printing Office, 2006), 155. See also Dean A. DeR- osa and Morris Goldstein, “Import Discipline in the US Manufactur- scale by operating on a global basis, and the spur to ing Sector” IMF Staff Papers (1981): 600–34; Ian Domowitz, R. Glenn productivity caused by greater competition in domestic Hubbard, and Bruce C. Petersen, “Business Cycles and the Relation- markets. The resultant benefits include the following, ship between Concentration and Price-Cost Margins,” The RAND Journal of Economics 17 (1986): 1–17; Michelle M. Katics and Bruce among others: C. Petersen, “The Effect of Rising Import Competition on Market Power: A Panel Data Study of US Manufacturing,” The Journal of Industrial Economics 42 (1994): 277–86; Martha K. Field and Emilio ■ Lower consumer prices. International trade Pagoulatos, “Foreign Trade Elasticities and Import Discipline,” Ap- promotes competition, which both introduces plied Economics 30 (1998): 105–11. Figure 1. Exports and Imports as a Share of GDP, 1985–2005 16 12 Imports 8 Exports Percent of GDP 4 0 1985 1987 1989 1991 1993 1995 1997 1999 2001 2003 2005 4 THE HAMILTON PROJECT | THE BROOKINGS INSTITUTION GROWTH, OPPORTUNITY, AND PROSPERITY IN A GLOBALIZING ECONOMY ■ Greater product variety. International trade Table 1. Benefits of International Trade allows U.S. consumers to enjoy a wider array of to U.S. Economy products, from agriculture to electronics to auto- mobiles. Christian Broda and David Weinstein es- Methodology Source Estimate, 2003 (US$ billions) a timate that the increased choice produces benefits OECD (2003) $1,451 b equal to roughly $300 billion a year.2 Bernard et al. (2003) $940 Bradford and Lawrence (2004)c $800 d ■ Increased productivity and GDP. International Richardson (2004) $1,058 trade bolsters competition; increases exposure to Source: Bradford et al. 2005 a. Organisation for Economic Co-operation and Development, The global best practices; expands the range of available Sources of Economic Growth in OECD Countries (Paris: OECD, 2003). b. Andrew Bernard, Jonathan Eaton, J. Bradford Jensen, and Samuel intermediate inputs for U.S. firms and reduces the Kortum, “Plants and Productivity in International Trade,” American Economic Review 93 (2003): 1268–90. prices of those inputs; facilitates the flow of knowl- c. Scott C. Bradford and Robert Z. Lawrence, “Non-MFN CGE edge across national boundaries; and provides op- Simulations” (photocopy, Brigham Young University [Provo, UT] and Harvard University [Cambridge, MA], 2004). portunities for relatively rapid growth by the most d. J. David Richardson, “‘Sizing Up’ the Micro-Data Benefits” (photocopy, Institute for International Economics, Washington, DC, productive firms. All of these improvements raise 2004). productivity. Empirical studies document a strong link between open trade and productivity growth.3 The evidence suggests that open trade does not A recent study attempts to aggregate these various ben- cause every firm to become more productive; in- efits.5