9/15/98
Week 4: Competition and Vested Interests: Government-Business Relations
Young-Ju Seo/Young B. Byun
Sylvia Maxfield and Ben Ross Schneider, eds., Business and the State in
Developing
Countries, Ch.4 & 5.
While some countries accomplish successful economic development with their
own strategies, others not. In order to fully understand this variance of
economic performance across countries, it is very important to answer how
different government-business relations bring about different developmental
strategies and economic outcomes. Korea and Taiwan are good examples where
how collaborative government-business relations enhance economic
performance without degenerating into rent seeking or corruption.
In this short summary, we introduce two alternative approaches to
government-business relations and their effect on economic development:
state vs. sector-centered approach. Both approaches are different in their
causal sequence between institutional structures and sectoral
restructuring. While state structural approach forces on how states'
institutional structures and their formal and informal connections to
business groups affect possibilities for economic transformation, secotoral
approach looks at how different secotral characteristics built by previous
economic policy shape existing state structures and government-business
relation.
<State Structures, Embedded Autonomy, and Economic Performance>
Institutionalists argue that the relationship between the state and
business accounts for the divergent outcomes of economical performance.
Field, arguing against, "lumpier" studies emphasizing that the
institutional similarities between Korea and Taiwan, and following
basically the model of etatist institutional success, explains convincingly
that historical legacies, situational imperatives, and regime dynamics
(including strategic choice of divergent developmental path) peculiar to
each of these political economies have given risen to different forms of
relationships between the state and business.
In Korea, a highly centralized authoritarian state, a substitute of
conquering bourgeoisie in Western Europe, created and nurtured big
conglomerates known as chaebol, and maintained a long-term collaborative
relationship of public-private reciprocity. Chaebol is becoming more and
more powerful enough to wield powerful influence onto the state for now.
In Taiwan, on the other hand, the political elites of newly arrived
mainlander wanted to control the economic ones of local Taiwanese within
economic sector, thus limited the size or capacity of big businesses. So,
compared to Korean case, KMT structured with the private conglomerates a
more distant and less institutionalized relationship of mutual adjustment.
In spite of different version of government-business relations between two
countries, in both cases of Korea and Taiwan, the Weberian bureaucracy, as
a representative of a state, shows us that it has kept a close formal and
informal relationship with business and its self-interest is firmly
anchored to institutional goal, without being captured in particularistic
rent-seeking.
<Sectoral attributes, state capacity, and restructuring>
For Shafer, sectoral attributes defined by four distinctive combinations
of four variables-capital intensity, economies of scale, production
flexibility, and asset/factor flexibility-are constraints for both the
state and private firms. In business side, Shafer argues that sectoral
attributes are a determinant not only of firms' preferences but also of
their capacity for collective action. In the state side, states' actual
ability to restructure depends on the tractability of their restructuring
project and the domestic political economy of leading sector because
sectoral attributes set the difficulty of the restructuring project.
Therefore, sectoral attributes result in distinctive patterns of state
institutional capabilities and of interest groups with sectorally
determined interests and collective action capabilities.
Now Shafer looks at the way in which Korea's shift of sectoral base from
low/low sectors to high/high sectors shapes change of government-business
relation and economic transformation strategies from ISI to export-led
policy in 1960s, to the Heavy and Chemical Industry Development Plan
(HCID), and to economic liberalization in the 1980s. As sectoral base
moves to high/high political economy the Korean government's autonomy and
capacity to restructure are substantially constrained by rising strength of
large conglomerates and labor. That is the reason why some trade
liberalization did occur in 1980s but only in return for the state's
acquiescence to the chaebol's demands that it cut its control of the
financial system. The state thus reduced regulation of nonbank financial
intermediaries (NBFIs), many of which are controlled by chaebol, and began
to privatize banking.
<Some critical comments>
State structures should be the starting point for the analysis of
collaborative government-business relation and its consequence of economic
performance in Korea and Taiwan because we believe that Shafer's sectoral
approach has flaws. First, while as an economy approaches to the high/high
political economy the state's autonomy and capacity to restructure are
diminished, it is hard to say that sectoral attributes determine or shape
general orientations of industrial transformation. In Korea, several
stages of restructuring during the 1960s-1980s, were initiated by the
government, not private conglomerates. This, however, does not mean that
the business groups were not able to articulate their interests into the
structural adjustment processes. Highly concentrated private conglomerates
came to exercise substantial power over government policy in the 1980s by
altering specific policy contents under the given much larger picture of
economic restructuring programs contrived by the government. Furthermore,
as in the case of Taiwan, the state has an ability to deepen its industrial
structure without eroding autonomy and capacity, compared to Korea, by
controlling the financial sector and keeping private firms small.
Second, there may be difficulties in putting various sectors on a
continuum stretching between two polar types: high/high sectors and low/low
sectors. Where are, for instance, information technology (internet,
software) and financial industry should be placed on the continuum?
Furthermore, there are no approximate quantitative criteria for classifying
a state's place on the continuum. While some countries are clearly
classified as either high/high or low/low economies, much more countries
may be placed somewhere between two ideal type of political economy. Then
the question is how we can explaine different government-business relations
and restructuring programs in these middle-positioned states.
Finally, watching the current economic crisis in Asia, many people may say
failure or limit of state-led economic development through collaborative
government-business relations. We, however, want to make a different
interpretation. As Korea shows, it might be said that external economic
crisis gives the state with an opportunity to have initiatives in economic
reforms even under the situation of high/high political economy where
collection action is easy both private firms and labor. Moreover, if we
agree, as many economists do, that one of causes of the crisis is the lack
of the Asian government's capacity monitoring banking system and excessive
borrowings by firms, the crisis may result in an increase of the state's
positive role in monitoring banking system and controlling excessive
capital flows.
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--=====================_906440700==_--