The political influence and preferences of the U.S. economic elite

With economic resources increasingly concentrated the top of the wealth and income ladders in the United States, the political power to influence and make policy increasingly resides with a tiny minority of people who are accruing the most from U.S. economic growth. A recent paper adds to our understanding of the political preferences of those at the top and how they might influence policy, by presenting empirical evidence on the partisan leanings of U.S. public-company chief executive officers. The results show that CEOs disproportionately display pro-Republican preferences.

The authors—Alma Cohen of Harvard Law School and Tel Aviv University, Moshe Hazan of Tel Aviv University, Roberto Tallarita of Harvard Law School, and David Weiss of Tel Aviv University—use Federal Election Commission records to look at the political contributions of more than 3,800 individuals who served as CEOs of companies included in the S&P Composite 1500 index during the 18-year period of 2000 to 2017.

The authors find that more that 57 percent of CEOs are Republicans, 19 percent are Democrats, and the rest are neutral. CEOs are classified as Republicans if they contribute at least two-thirds of their donations to Republican candidates, as Democrats if they contribute at least two-thirds of their donations to Democratic candidates, and neutral if they split their financial support among the two major parties. The median CEO directs 75 percent of their total contributions to Republicans. The pattern is consistent over time: Republican CEOs substantially outnumber Democratic CEOs in each year of the 18-year period that is studied. (See Figure 1.)

Figure 1

Why is it important to understand the political preferences of CEOs? The heads of S&P Composite 1500 companies are an extremely small group, accounting for less than 0.001 percent of U.S. voters. They do, however, wield a very high degree of influence over policymaking and politics in the United States through corporate political spending and policy activism.

First, CEO preferences are a window into corporate political spending, which is highly influential especially since the Supreme Court’s decision in Citizens United v. Federal Election Commission, which allowed corporations to make unlimited independent political expenditures. Public companies are generally not required to disclose their political spending to their investors, and although direct contributions must be reported to a federal or state agency, information is scattered among hundreds of filings. Corporations can also make donations through intermediaries.

Public companies make up less than 0.1 percent of the total number of U.S. firms but account for more than 30 percent of private-sector employment and more than 50 percent of pretax profits. The four co-authors note that directing even a tiny fraction of corporate profits to politics has the potential to make a huge impact. In 2017, S&P 1500 companies had aggregate profits of $1.2 trillion. Using just 0.1 percent of these profits for political spending would direct $1.2 billion into the political process. For comparison, the two major presidential candidates in the 2015–2016 cycle raised a combined total of $1.2 billion.

Second, CEOs express views and provide advice on policy—both individually and through their most prominent association, the Business Roundtable. About 200 CEOs of leading companies are part of the Business Roundtable, which was created to formulate and advocate policy views and does so successfully. In the runup to the passage of the 2017 tax law, for example, the organization persuaded lawmakers to repeal the corporate alternative minimum tax, a measure designed to ensure that each corporation paid at least some minimum amount of tax. CEOs also express opinions on issues unrelated to their companies’ core business, such as LGBTQ rights, race relations, and climate change.

CEOs also occupy a privileged position as advisers to policymakers at the highest levels. President Donald Trump created an advisory committee, appointing 16 CEOs of large public companies to advise him on business regulation and economic policy, and another advisory council to advise him on manufacturing growth. President Barack Obama’s Economic Recovery Advisory Board and Council on Jobs and Competitiveness included prominent CEOs tasked with providing “nonpartisan” advice.

Turning back to the research findings of the paper, Republican leanings among CEOs hold even when their preferences are disaggregated by industry sector, region, and gender. Dividing the companies into 12 industry sectors, the authors find that each sector shows a pro-Republican imbalance, with considerable variation across industries. The energy sector is composed of almost 90 percent Republicans and 5 percent Democrats. Manufacturing and chemicals also lean heavily Republican, while business equipment and telecoms have the lowest Republican-Democrat ratio, at 1.6.

By region, pro-Republican preferences are strongest for CEOs of companies headquartered in the Midwest and the South. These preferences are the least strong for CEOs of companies in the Northeast and West. (See Figure 2.)

Figure 2

The gender of chief executives also is significantly associated with partisan preferences. There is a clear pro-Republican tilt characterizing the male CEOs but not the female CEOs, who make up only 2.8 percent of the group. Male Republican CEOs are more than three times as numerous as male Democratic CEOs, while female Republican CEOs outnumber female Democratic CEOs by a ratio of just 1.1. The pro-Republican tilt among male CEOs is strong and consistent throughout the entire period, whereas it is much more variable for female CEOs, with Democrats outnumbering Republicans in some years. (See Figure 3.)

Figure 3

This research on the political preferences of U.S. CEOs adds another layer to our understanding of how economic inequality subverts our democracy and the public institutions and the policymaking process we need to support the U.S. economy—laid out by Equitable Growth President and CEO Heather Boushey in her new book, Unbound: How Inequality Constricts Our Economy and What We Can Do About It.

A booming political science literature documents how those at the top of the wealth and income distribution are more able than the rest to get their interests heard in the political process and set the political agenda. Policies supported by the rich are two-and-a-half times more likely to pass than those not supported by the rich. And political campaign contributions largely nudge out candidates to the left and even in the center. Further, corporate money is pervasive throughout the U.S. political system, seen through the many lobbyists working on Capitol Hill and even through charitable donations made by corporations.

U.S. CEOs and the few others at the top use their political influence to eliminate regulations and reduce taxes—thereby eroding the ability of public institutions to do essential functions and make critical public investments that benefit the overall economy. By subverting our economy in various ways, economic inequality undermines confidence that institutions of governance can deliver for the majority. Inequality in wealth and power is thwarting the government from taking on collective endeavors that provide the foundation for strong, stable, broad-based growth, while promoting the interests of the economic elite over others.

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Weekend reading: “Competition and employment” edition

This is a post we publish each Friday with links to articles that touch on economic inequality and growth. The first section is a round-up of what Equitable Growth published this week and the second is relevant and interesting articles we’re highlighting from elsewhere. We won’t be the first to share these articles, but we hope by taking a look back at the whole week, we can put them in context.

Equitable Growth round-up

The landscape of competition and consumer protection has changed and the Federal Trade Commission is trying to keep up with the times, writes Jonathan Sallet. In hearings conducted between September 2018 and June 2019, the FTC heard from experts and analysts on how things have changed and what the FTC can do to adapt the full spectrum of its competition work. Sallet compiles the suggestions from the hearings under five broad categories: growing market concentration, evolving business models, protecting competition as well as consumers, utilizing modern economic tools and analysis, and taking advantage of the full range of enforcement tools at the FTC’s disposal. Integrating the knowledge from these hearings into its day-to-day work will be essential for the FTC to continue its antitrust law enforcement in the modern economy.

The U.S. Bureau of Labor Statistics issued its monthly report on the U.S. labor market for September, showing that despite employment for prime-age worker rising to near pre-Great Recession levels, these gains are mainly in healthcare and education, while manufacturing and construction employment rates have plateaued and retail employment decreased. Likewise, the data show that there is no evidence that the current tight labor market is exerting upward pressure on wages as nominal wage growth remains below healthy levels. Raksha Kopparam and Kate Bahn put together five graphs highlighting these important trends in the monthly announcement.

Head over to Brad DeLong’s latest worthy reads for his takes on must-see content from Equitable Growth and around the web.

Links from around the web

The U.S. Census Bureau recently announced that inequality has grown to its highest point in more than 50 years, meaning that the gap between the richest and poorest Americans is at its widest point in decades. The numbers indicate that “America has not become a poor country but an unfair country,” writes Sarah Jones for New York Magazine. “The poor aren’t necessarily making less money, but as the wealthy get wealthier, people on the bottom end of the income scale are running in place,” she continues, arguing that we may have finally reached the tipping point on inequality in the United States.

As California lawmakers toy with the idea of implementing a public banking system, it wouldn’t hurt to take a look at North Dakota, where the nation’s only state-owned bank has been up and running for more than a century. Obvious differences (in size, economy, and population, to name a few) between the two states aside, “many of the characteristics of the modern economic landscape are eerily similar to that of a century ago when [the Bank of North Dakota] first passed: increasing income inequality and predatory practices on the part of financial institutions,” writes Will Peischel for Vox.

It would seem that wealth taxes are all the rage, as Democratic presidential candidates Sens. Elizabeth Warren (D-MA) and Bernie Sanders (I-VT) each recently announced their proposals for increasing taxation on the rich. Former Vice President Joe Biden is reportedly also weighing his options in this area. But, argues Ashlea Ebeling in Forbes, the wealthy may want to prepare for a change in the estate tax rather than a new wealth tax. The estate tax can be applied to a larger group of people and is already in place, albeit in a highly scaled-back position thanks to the Tax Cuts and Jobs Act of 2017, which more than doubled the estate tax exemption to those estates valued at $11.4 million and higher. Of course, the two are not mutually exclusive and could be implemented together, or alongside any of the multitude of other options available for taxing wealth.

Home health aides are increasingly sought-after to provide care for elderly and retiring Americans—and they have one of the most difficult jobs in the labor market—but these workers rarely receive the pay or protections they deserve. A new bill introduced by House and Senate Democrats aims to change that, however, by creating sustainable career paths for caregivers, including apprenticeships, on-the-job training, professional development, or mentoring, reports Alexia Fernández Campbell for Vox. These supports will be essential given that the U.S. Bureau of Labor Statistics estimates a 41 percent increase in the number of available home caregiver positions—1.2 million more than the current 2.9 million—by 2026.

Friday Figure

Figure is from Equitable Growth’s “Equitable Growth’s Jobs Day Graphs: September 2019 Report Edition,” by Raksha Kopparam and Kate Bahn.

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Brad DeLong: Worthy reads on equitable growth, September 28–October 4, 2019

Worthy reads from Equitable Growth:

  1. Listen to Kate Bahn’s podcast, “Real talk with feminist visionaries, Season 3, No. 23, Kate Bahn.” This isn’t your Econ 101 take on the economy!
  2. Read Equitable Growth grantee Ellora Derenoncourt’s new paper with co-author Claire Montialoux, “Minimum Wages and Racial Inequality,” in which they present a key finding: “20 percent of the decline in the racial earnings gap during Civil Rights era stemmed from one single reform of the minimum wage.”
  3. Read Jonathan Sallet, “Competitive Edge: Five Building Blocks for Antitrust Success: The Forthcoming FTC Competition Report,” in which he writes: “Here are five building blocks for successful antitrust enforcement that the Federal Trade Commission should embrace in order to, as its Chairman Joseph Simons said (quoting his predecessor Bob Pitofsky), ‘restore the tradition of linking law enforcement with a continuing review of economic conditions to ensure that the laws make sense in light of contemporary competitive conditions’ … Pay attention to growing market concentration … Business models are evolving [and] today, multisided business models intersect with other economic trends that include network effects, the aggregation of data, and vertical integration … Antitrust enforcement protects competition, not just consumers … Modern economic analysis is up to the challenge … Congress gave the FTC broader enforcement tools than just the Sherman and Clayton Acts.”
  4. Re-read Carmen Ye, “Why we need better re-employment policies for formerly incarcerated African American men,” because she makes these important points: “African American men … 33 percent of the 1.56 million Americans held in state or federal prisons … When these men are released from prison, what will their employment prospects look like? … Black applicants with no criminal record receive a callback or job offer at the same rate as white applicants with a felony conviction. Yet black applicants without a criminal record were three times as likely to get a callback as those with a record.”

 

Worthy reads not from Equitable Growth:

  1. Once again, we have a piece by an impressively credentialed academic Republican economist that seems to me to have no contact with reality. There is no economist I know of, save for Robert Barro, who has ever said or implied that the “neutral” real interest rate today is the same 2.4 percent that the average real interest rate was from 1986–2008. To the contrary, there has been a very long and active discussion—led over the past two decades by current New York Fed President John Williams—about how far the “neutral” rate has fallen and how persistent that fall will be. And one conclusion of that debate has been that the current real federal funds rate of “only 0.7 percent” does indeed look “high” by some important metrics. So, why would anyone write as though this literature does not exist? Read Robert J. Barro, “Is Politics Getting to the Fed?,” in which he writes: “From the early 1980s until the start of the financial crisis in September 2008, the U.S. Federal Reserve seemed to have a coherent process for adjusting its main short-term interest rate, the federal funds rate. Its policy had three key components: the nominal interest rate would rise by more than the rate of inflation; it would increase in response to a strengthening of the real economy; and it would tend toward a long-term normal value. Accordingly, one could infer the normal rate from the average federal funds rate over time. Between January 1986 and August 2008, it was 4.9 percent, and the average inflation rate was 2.5 percent … The Fed’s prolonged low-interest-rate policy, which was supplemented by quantitative easing [or QE], seems misguided, considering that the economy had long since recovered, at least in terms of the unemployment rate. The nominal federal funds rate was not placed on an upward trajectory until the end of 2016 … It is hard to view today’s nominal federal funds rate of 2.4 percent as high. With an inflation rate of 1.7 percent, the real federal funds rate is only 0.7 percent. And yet the Fed’s “high”-interest-rate policy was fiercely attacked by Wall Street … That view is not crazy if you are focused solely on boosting the stock market. On average, interest-rate cuts do tend to stimulate the stock market by making real returns on bonds less competitive. But that does not mean it is good economic policy always to be cutting rates.”
  2. A very nice look back at a big story from a decade ago that simply did not happen. Read Ben Casselman, “The White-Collar Job Apocalypse That Didn’t Happen,” in which he writes: “‘Where in retrospect I missed the boat is in thinking that the gigantic gap in labor costs between here and India would push it to India rather than to South Dakota,’ Mr. Blinder said in a recent interview … Adam Ozimek revisited Mr. Blinder’s analysis to see what had happened over the past decade. Some job categories that Mr. Blinder identified as vulnerable, like data-entry workers, have seen a decline in United States employment. But the ranks of others, like actuaries, have continued to grow … Overall, of the 26 occupations that Mr. Blinder identified as ‘highly offshorable’ and for which Mr. Ozimek had data, 15 have added jobs over the past decade and 11 have cut them. Altogether, those occupations have eliminated fewer than 200,000 jobs over 10 years, hardly the millions that many feared … In the jobs that Mr. Blinder identified as easily offshored, a growing share of workers were now working from home. Mr. Ozimek said he suspected that many more were working in satellite offices or for outside contractors, rather than at a company’s main location. In other words, technology like cloud computing and videoconferencing has enabled these jobs to be done remotely, just not quite as remotely as Mr. Blinder and many others assumed … Call centers [and] telemarketing jobs have declined sharply in the United States since 2007, as much of the work was sent overseas. But the number of customer service representatives has continued to grow … Telemarketers are essentially selling products and often working from a script. Customer service and other call-center work like tech support often require a more nuanced understanding of the customer experience.”
  3. There are remarkably good odds that the next global recession will be triggered by the miscalculations of politicians who have no business holding any office whatsoever. I have but one quibble with Nouriel Roubini’s argument here. The situation in Argentina is dire for Argentina and the southern cone, but it is not the kind of thing that can provoke a global recession. President Donald Trump and UK Prime Minister Boris Johnson, by contrast, might. Read Nouriel Roubini, “Four Collision Courses for the Global Economy,” in which he writes: “Between U.S. President Donald Trump’s zero-sum disputes with China and Iran, U.K. Prime Minister Boris Johnson’s brinkmanship with Parliament and the European Union, and Argentina’s likely return to Peronist populism, the fate of the global economy is balancing on a knife edge. Any of these scenarios could lead to a crisis with rapid spillover effects … In each case, failure to compromise would lead to a collision, most likely followed by a global recession and financial crisis … The problem is that while compromise requires both parties to de-escalate, the tactical logic of chicken rewards crazy behavior. If I can make it look like I have removed my steering wheel, the other side will have no choice but to swerve. But if both sides throw out their steering wheels, a collision becomes unavoidable.”
  4. No matter what our domestic economic problems, it is still essential to remind ourselves that for humanity as a whole, the years since 1980 have seen the greatest improvement in economic well-being, globally, of any 40-year period in human history. We have been truly blessed. Read Noah Smith, “Globalization Has Cut Inequality Between Rich and Poor Countries,” in which he writes: “Up through the 1980s, the blessings of the Industrial Revolution seemed largely confined to a handful of countries in Western Europe, East Asia, the [United States], Australia, and Canada. But in the past three decades, there has been a sea change, and developing countries have made great strides in catching up. Although inequality has risen within some nations, at the global level it’s going down: Much of this catch-up is happening in countries that are still largely poor, such as India or Indonesia. To an economist—or someone who cares about alleviating the suffering of the world’s poorest people—this still represents a miracle. But a skeptic of globalization might wonder whether it can really be called a success if broad middle-class living standards still remain the exclusive privilege of a handful of nations, many of them former colonial powers.”
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Equitable Growth’s Jobs Day Graphs: September 2019 Report Edition

On October 4th, the U.S. Bureau of Labor Statistics released new data on the U.S. labor market during the month of September. Below are five graphs compiled by Equitable Growth staff highlighting important trends in the data.

1.

The employment-to-population ratio for prime-age workers continued its upward trend to 80.1% in September, after a significant increase in the prior months.

2.

The growth in average hourly earnings year-over-year slowed further to 2.9%, with no evidence that the tight labor market is exerting upward pressure on wages.

3.

Employment in health care and education continues to drive job growth, as manufacturing and construction plateaued and retail declined in September.

4.

While there has been growth in the share of unemployed workers who have voluntarily left their jobs to look for new opportunities, there is also a lower share of workers out of the labor force who are re-entering to look for jobs.

5.

An increasing proportion of unemployed workers have been out of a job for 5-14 weeks and for longer than 15 weeks, increasing from 29.1% to 30.8% and 34.4% to 36.9%, respectively, in September.

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Competitive Edge: Five building blocks for antitrust success: the forthcoming FTC competition report

Antitrust and competition issues are receiving renewed interest, and for good reason. So far, the discussion has occurred at a high level of generality. To address important specific antitrust enforcement and competition issues, the Washington Center for Equitable Growth has launched this blog, which we call “Competitive Edge.” This series features leading experts in antitrust enforcement on a broad range of topics: potential areas for antitrust enforcement, concerns about existing doctrine, practical realities enforcers face, proposals for reform, and broader policies to promote competition. Jonathan Sallet has authored this month’s contribution.

The octopus image, above, updates an iconic editorial cartoon first published in 1904 in the magazine Puck to portray the Standard Oil monopoly. Please note the harpoon. Our goal for Competitive Edge is to promote the development of sharp and effective tools to increase competition in the United States economy.


Jonathan Sallet

Between September 2018 and June 2019, the Federal Trade Commission conducted a series of public hearings to study the landscape of competition and consumer protection. The next step—and the crucial one—is for the FTC to integrate the lessons learned from those proceedings into its day-to-day work.

Here are five building blocks for successful antitrust enforcement that the FTC should embrace in order to, as its Chairman Joseph Simons said (quoting his predecessor Bob Pitofsky), “restore the tradition of linking law enforcement with a continuing review of economic conditions to ensure that the laws make sense in light of contemporary competitive conditions.”1

Antitrust enforcers should pay attention to growing market concentration

On the first day of the hearings, Jonathan Baker, a law professor at American University’s Washington School of Law and author of the new, indispensable book The Antitrust Paradigm, laid out nine reasons to conclude that “market power is substantial and has been growing.”2 Baker emphasized that the growth of oligopolies in markets that include airlines, brewing, and hospitals are all outcomes that he said cannot be explained simply by growth in scale economies.3

Economists Joshua Wright at George Mason University’s Antonin Scalia School of Law and Steven Berry at Yale University took different views. Wright said that his review of the evidence of market concentration led to the conclusion that “we do not know much that is relevant to formation of antitrust policy” and emphasized that he would not equate market concentration with the presence or absence of competition.4 Berry cautioned against overreliance on market concentration as the explanation of the increase in corporate profits.5

But Berry also emphasized that in light of the evidence of higher markups, “[w]e cannot just wave our hands and say it is all fine.”6 Rather, he said that “sophisticated context-sensitive antitrust policy is clearly important.”

What to do in the face of these competing viewpoints? In her testimony that same day, economist Fiona Scott Morton at the Yale University School of Management emphasized that uncertainty does not justify antitrust inaction. Rather, she said that the evidence of growing market power suggests that underenforcement is today a greater risk than overenforcement.7

Underenforcement can lead, of course, to familiar kinds of competitive harm, such as higher prices and reduced innovation. But there is more. The United States is in its fifth decade of increasing income inequality—on September 26, 2019, the U.S. Census Bureau released figures showing that income inequality had reached its highest level in more than 50 years of measurement. Baker and Steven Salop at Georgetown Law opined that “[m]arket power contributes to growing inequality.”

Scott Morton’s point is fundamental. Antitrust is law enforcement, and law enforcement rests on case-specific evidence. But larger trends should surely impact the prioritization of antitrust resources and the questions that antitrust enforcers ask. Indeed, if the right investigations are not opened and the right questions are not asked, then we may never know whether a problem ever existed.

Vertical merger transactions are a good example. As Salop explained at the hearings, vertical mergers may look benign in a world of unconcentrated upstream and downstream markets, where customers at both levels face a plethora of competitive alternatives, but such transactions require much greater scrutiny when a new vertical relationship is created in a world of oligopolies. 8 That’s because the existence of oligopolies make it more likely that an input supplier can harm some of its customers in order to aid its downstream affiliate and harm consumers as a result. Salop argued that anticompetitive presumptions should apply to vertical mergers in some circumstances.

Daniel O’Brien, former deputy director of the FTC’s Bureau of Economics and now executive vice president at the consultancy firm Compass Lexecon, didn’t see it the same way. He told the commission that he did not contend there could never be input foreclosure, but contended that mergers of companies offering complementary products would normally be procompetitive.9 An example of complementary products would be razors and razor blades—if you use one, you’re more likely to use the other. O’Brien also said that procompetitive presumptions should apply to some vertical mergers.

In my view, the discussion of vertical mergers illuminates why antitrust enforcement should recognize the changing nature of markets and, in particular, the manner in which the existence of oligopolies increases the need to consider theories of harm when considering vertical arrangements. Understanding broad changes in the U.S. economy helps antitrust agencies formulate theories of harm, focus their economic analysis, and consider, early on in an investigation, what facts will likely be most important. The forthcoming FTC competition report should consider how best to recognize the implications of these broad economic trends.

Business models are evolving, which can change the terms of competition

Two-sided business models aren’t new. Think of the coffee house in London in the early 1700s that, profiting from the aggregation of ship owners and the insurance brokers, morphed into Lloyd’s of London. But today, multisided business models intersect with other economic trends that include network effects, the aggregation of data, and vertical integration. That’s a reason why merger enforcement should look more closely at the acquisition of potential or nascent competitors.

If Microsoft Corp. in the early 1990s had tried to buy the then-independent web browser company Netscape in order to protect its monopoly in personal computer operating systems, would enforcers have then understood the competitive implications of blunting the ability of new browser rivals to attack the market for PC operating systems? Such potential or nascent competition is particularly important in winner-take-all markets that often (and without any necessary trace of anticompetitive conduct) tip toward single-firm dominance—an outcome that emphasizes competition for the market, not just competition for greater share within a market. When dominance becomes embedded, markets are much less likely to self-correct.

Also, antitrust enforcement should fight any extension of the U.S. Supreme Court opinion in Ohio vs American Express Co. (wrongly decided in my view) to multisided business models generally. Any expansion of American Express would leave consumers and competitors vulnerable to a range of anticompetitive actions that are justified by a company sharing its increased profits with one out-of-market group of users at the expense of others.

The American Express decision paired this error with another one—the suggestion that direct evidence of harm to competition isn’t enough in an vertical case without the separate presentation of a properly defined antitrust market. The forthcoming FTC competition report could usefully untangle these knots by explaining how to identify the narrow slice of multisided markets actually at issue in American Express, and then offering thoughts on how to identify competitive harm in vertical cases generally.

Antitrust enforcement protects competition, not just consumers who buy things

Multiple speakers explained that antitrust protects the competitive process, not just direct purchasers or final consumers. Carl Shapiro, an economist at the University of California, Berkeley, proposed in the hearings that a business practice be judged to be anticompetitive if it harms trading parties on the other side of the market as a result of disrupting the competitive process.10 For Shapiro, this approach would give structure to antitrust law and economics in a world in which the dangers of horizontal agreements, exclusionary conduct, and anticompetitive horizontal and vertical mergers have all grown.11

Think about the potential impact on workers from the market power of employers. University of Pennsylvania economist Ioana Marinescu proposed in her work, including with UPenn Law School professor Herbert Hovenkamp, that when merging employers in the same place hire workers with the same kinds of qualifications to do the same kind of job, traditional antitrust principles appropriately ask whether the workers would be harmed by a labor monopsony.

The extent to which labor monopsonies are generally the cause of lower wages for workers was hotly debated. Massachusetts Institute of Technology economist Nancy Rose, for example, questioned whether market concentration is generally the cause of low wages. At the same time, she recommended the study by Elena Prager at Northwestern University and Matt Schmitt at the University of California, Los Angles of hospital merger effects on labor as the type of study that can shed light on this question. And enforcement activity has recognized circumstances, concerning nurses and Silicon Valley workers for example, in which antitrust injury has been inflicted upon employees.

That recognition is the basis, for example, for the joint 2016 Department of Justice and Federal Trade Commission policy treating as illegal “no poach” agreements among companies not to hire each other’s workers. Similarly, in United States v. Anthem, Inc., the Department of Justice challenged a healthcare merger asserting, in part, that the increased buyer power of the new firm would “enhance Anthem’s leverage,” which would likely reduce the rates that hospitals and physicians would be able to earn.

So, there appears to be a broad consensus that merging employers could hold market power over labor and that where that would occur, the transaction should be examined using well-established antitrust principles.

Indeed, monopsony, as a concept generally, deserves more attention. Monopsony is monopoly turned upside down—with market power being directed by a buyer at a seller to force input prices artificially lower than they would be in a competitive market. As the Supreme Court said a long time ago, antitrust enforcement is not just about protecting consumers from rising prices but also about guarding more broadly against anticompetitive disruption of competitive pricing (and nonpricing terms).12 That understanding reaches monopsonies, too.

Another example of antitrust enforcement ensuring competition arises when harm is to a business, not directly to a consumer. For example, the FTC successfully blocked the proposed Staples-Office Depot merger that would have harmed business customers. The FTC should not narrow its search for competitive harm to consumers only.

Modern economic analysis is up to the challenge

Of course, knowing more is always better than knowing less. But law enforcement agencies need to make the best judgements they can because justice delayed is justice denied. So, it’s important to recognize that modern economics offers analysis fit for these times. As Scott Morton said at the FTC hearings, “I think we have the tools. I do not think we need to spend ten years developing the tools.”13

Indeed, in 2018, Scott Morton wrote, along with Jonathan Baker and me in the Yale Law Journal, that in the aftermath of the Chicago School critique of antitrust enforcement, the economics profession has developed “many tools that identify and measure anticompetitive conduct.” Economics can now explain why it does not make sense to presume that markets will self-correct from monopoly or collusion, exclusionary vertical conduct cannot be anticompetitive because there is only a single monopoly profit, or most mergers in concentrated markets are efficient and therefore procompetitive. The FTC hearings featured important perspectives on the best way that antitrust agencies can apply today’s economic learnings in a manner that ensures that antitrust fully recognizes today’s competitive conditions.

Congress gave the FTC broader enforcement tools than just the Sherman and Clayton Acts

An important aspect of Federal Trade Commission authority is the scope of Section 5 of the Federal Trade Commission Act of 1914, which establishes the agency’s power to halt “unfair methods of competition.” I suggested at one hearing that Section 5 should be re-examined and applied to reach anticompetitive harms beyond the reach of the Sherman Act. This might include unilateral conduct that, as Steven Salop has written, “leads to achievement, maintenance, or enhancement of market power that likely harms consumers on balance.”

In its administrative complaint filed against Intel Corp., for example, the FTC alleged that Intel’s conduct constituted a “stand-alone” violation of Section 5 (that is, without reference to the Sherman Act). UPenn’s Hovenkamp has suggested that the FTC consider the use of Section 5 to attack monopoly in its incipiency, reach collusion-like activity (including through the use of certain most-favored nation clauses), and halt anticompetitive behavior outside a firm’s primary market, where these is no actionable threat of achieving market power in that other market.

So, for example, the FTC commissioners could consider whether input foreclosure is harmful to competition when conducted by an integrated firm with market power in a concentrated market for the production of a critical input where its upstream affiliate (the supplier of that input) is a substantial supplier of that input to downstream rivals.

After all, the FTC was given its authority in 1914 under the Federal Trade Commission Act precisely because Congress decided that the Sherman Act didn’t go far enough. Similarly, although the FTC’s Section 5 prohibition of “unfair and deceptive acts and practices” has traditionally been applied to consumer protection issues that are separate from competition questions, the agency should be alert to circumstances in which anticompetitive conduct is also unfair and deceptive. Imagine false statements by a seller to consumers that effectively prevent rivals from competing effectively to the detriment of those consumers.

Conclusion

These five lessons should inform the full spectrum of the FTC’s competition work, from framing the issues to be examined in a merger or conduct investigation to creation of remedies, the use of rulemaking authority, and competition advocacy. These five lessons also should apply to litigation, the ultimate test for antitrust enforcement. And they should also help generalist judges understand what antitrust law and economics have already established.

As the Washington Center for Equitable Growth’s Director of Markets and Competition Policy Michael Kades explains, government antitrust enforcement is hampered when courts require antitrust enforcers to spend their time and resources proving water makes things wet rather than bringing cases on behalf of consumers.

This is the moment when the FTC can again demonstrate the intellectual curiosity that was the basis for its creation—as an expert agency that rigorously analyzes markets and competition. The FTC’s competition hearings provide both a map for antitrust enforcement and a benchmark against which to measure future administrative and judicial decisions. Publication of a strong, pro-enforcement report and the integration of its learnings into the day-to-day work of the FTC will be an important and necessary step in the right direction.

Jonathan Sallet is a senior fellow at the Benton Institute for Broadband & Society. I am appreciative to Jonathan Baker, Michael Kades, Steven Salop, Carl Shapiro, and Fiona Scott Morton for their review of this essay in draft form.

Brad DeLong: Worthy reads on equitable growth, September 23–27, 2019

Worthy reads from Equitable Growth:

  1. I wish to once again flag this: Recession Ready. We are not yet out of time to take steps to keep the next U.S. recession from turning into a depression. But the clock is ticking. Here is an issue are in which the sooner we take action, the better. And in this book, we at Equitable Growth and the Hamilton Project have, I think, done a very good job: Read Recession Ready, which begins: “Economic recessions are inevitable and they are painful, with harsh short-term effects on families and businesses and potentially deep long-term impacts on the economy and society. But we can ameliorate some of the next recession’s worst effects and minimize its long-term costs if we adopt smart policies now that will be triggered when its first warning signs appear. Equitable Growth has joined forces with the Hamilton Project to advance a set of specific, evidence-based policy ideas for shortening and easing the impacts of the next recession.”
  2. Read this very nice piece by our young whippersnapper Raksha Kopparam summarizing the strong evidence that societal well-being is badly damaged by yet another pharmaceutical industry market failure. Read her “Killer acquisitions lead to decreased innovation and competition in the U.S. prescription drug market,” in which she writes: “Consolidation in the pharmaceutical industry is probably stifling rather than promoting innovation. Approximately 6 percent of pharmaceutical acquisitions are what the authors refer to as ‘killer acquisitions,’ in which an incumbent firm acquires a product in development that could compete with the incumbent’s own product and then subsequently terminates development of the target firm’s product, thus killing competition and innovation.”
  3. Five years ago, our Steering Committee member Janet Yellen gave a very good talk on building blocks of opportunity in America. Read Janet Yellen, “Perspectives on Inequality and Opportunity from the Survey of Consumer Finances,” in which she said: “[I] identify and discuss four sources of economic opportunity in America—think of them as “building blocks” for the gains in income and wealth that most Americans hope are within reach of those who strive for them. The first two are widely recognized as important sources of opportunity: resources available for children and affordable higher education. The second two may come as more of a surprise: business ownership and inheritances. Like most sources of wealth, family ownership of businesses and inheritances are concentrated among households at the top of the distribution. But both of these are less concentrated and more broadly distributed than other forms of wealth, and there is some basis for thinking that they may also play a role in providing economic opportunities to a considerable number of families below the top.”
  4. Equitable Growth Research Advisory Board member Arindrajit Dube at the University of Massachusetts Amherst writes about his long-time mentor and friend Marty Weitzman, who died by suicide last month.

 

Worthy reads not from Equitable Growth:

  1. One of the most intriguing anomalies in all of behavioral economics is the so-called Monty Hall problem—many people refusing to believe that revealing apparently irrelevant information can and should change your assessment of likelihoods and thus your optimal decision. Perhaps this is because we are wired at a fairly deep level to believe in “no correlation without causation.” We have to see a causal link between two phenomena in order to be willing to believe that they are correlated. Whether that is the explanation or not, it is clear that those of us who are bears of little brain need a lot of systematic help in parsing out issues of causation in complicated systems. And here, Dana Mackenzie and Judea Pearl’s The Book of Why: The New Science of Cause and Effect is going to be of enormous help in providing a gentle introduction to the issues and framework for thought. Read a review of the book by the extremely sharp Lisa Goldberg, in which she writes: “Pearl’s co-author Dana Mackenzie spoke on causal inference … It concluded with an image of the first self-driving car to kill a pedestrian … With a lead time of a second and a half, the car identified the object as a pedestrian. When the car attempted to engage its emergency braking system, nothing happened. The NTSB report states that engineers had disabled the system in response to a preponderance of false positives in test runs. The engineers were right, of course, that frequent, abrupt stops render a self-driving car useless. Mackenzie gently and optimistically suggested that endowing the car with a causal model that can make nuanced judgments about pedestrian intent might help … Professor Judea Pearl has given us an elegant, powerful, controversial theory of causality. How can he give his theory the best shot at changing the way we interpret data? There is no recipe for doing this, but teaming up with science writer and teacher Dana Mackenzie, a scholar in his own right, was a pretty good idea.”
  2. Are the unmeasured societal well-being benefits of new technologies 0.02 percent a year, or 0.1 percent, 0.5 percent, or perhaps 2.5 percent or more? I tend to be on the side something between 0.5 percent and 2.5 percent—the fact that people with a poverty-line income of $25,000 for a family of four seem, to me, to live better than people with the same nominal income in any past generation is, for me, dispositive. Public and private health, entertainment, and information technologies are “seismic,” and seem, to me, to have overwhelmed the rest. But here we have smart people disagreeing. Plus—an issue that they do not raise—is Facebook actually a net plus? You can make the case that it has not been. Read Erik Brynjolfsson, Avinash Collis, W. Erwin Diewert, Felix Eggers, and Kevin J. Fox, “GDP-B: Accounting for the Value of New and Free Goods in the Digital Economy,” in which they write: “The welfare contributions of the digital economy, characterized by the proliferation of new and free goods, are not well-measured in our current national accounts. We derive explicit terms for the welfare contributions of these goods and introduce a new metric, GDP-B, which quantifies their benefits, rather than costs. We apply this framework to several empirical examples, including Facebook and smartphone cameras, and estimate their valuations through incentive compatible choice experiments. For example, including the welfare gains from Facebook would have added between 0.05 and 0.11 percentage points to GDP-B growth per year in the United States.”
  3. The extremely smart Ricardo Hausmann has good ideas for the reform of public policy school education. Read his “Don’t Blame Economics, Blame Public Policy,” in which he writes: “Public policy schools, which typically have a strong economics focus, must now rethink the way they teach students—and medical schools could offer a model to follow … Economics is to public policy what physics is to engineering, or biology to medicine. While physics is fundamental to the design of rockets that can use energy to defy gravity, Isaac Newton was not responsible for the Challenger space shuttle disaster. Nor was biochemistry to blame for Michael Jackson’s death. Physics, biology, and economics, as sciences, answer questions about the nature of the world … generating … propositional knowledge. Engineering, medicine, and public policy, on the other hand, answer questions about how to change the world … Although engineering schools teach physics and medical schools teach biology, these professional disciplines have grown separate from their underlying sciences … Public policy schools, by contrast, have not undergone an equivalent transformation … Policy experience before achieving professorial tenure is discouraged and rare. And even tenured faculty have surprisingly limited engagement with the world, owing to prevailing hiring practices and a fear that engaging externally might entail reputational risks for the university. To compensate for this, public policy schools hire professors of practice, such as me, who have acquired prior policy experience elsewhere … The teaching-hospital model could be effective in public policy … Consider, for example, Harvard University’s Growth Lab, which I founded in 2006 after two highly fulfilling policy engagements in El Salvador and South Africa.”
  4. This is absolutely brilliant, and quite surprising to me. I had imagined that most of discrimination in the aggregate was the result of a thumb placed lightly on the scale over and over and over again. Patrick Kline and Christopher Walters present evidence that, at least in employment, it is very different—that a relatively small proportion of employers really, really discriminate massively, and that most follow race-neutral procedures and strategies. Read Patrick Kline and Christopher Walters, “Audits as Evidence: Experiments, Ensembles, and Enforcement,” in which they write: “We develop tools for utilizing correspondence experiments to detect illegal discrimination by individual employers. Employers violate U.S. employment law if their propensity to contact applicants depends on protected characteristics such as race or sex. We establish identification of higher moments of the causal effects of protected characteristics on callback rates as a function of the number of fictitious applications sent to each job ad. These moments are used to bound the fraction of jobs that illegally discriminate. Applying our results to three experimental datasets, we find evidence of significant employer heterogeneity in discriminatory behavior, with the standard deviation of gaps in job-specific callback probabilities across protected groups averaging roughly twice the mean gap. In a recent experiment manipulating racially distinctive names, we estimate that at least 85 percent of jobs that contact both of two white applications and neither of two black applications are engaged in illegal discrimination. To assess more carefully the tradeoff between type I and II errors presented by these behavioral patterns, we consider the performance of a series of decision rules for investigating suspicious callback behavior under a simple two-type model that rationalizes the experimental data. Though, in our preferred specification, only 17 percent of employers are estimated to discriminate on the basis of race, we find that an experiment sending 10 applications to each job would enable accurate detection of 7 percent to 10 percent of discriminators while falsely accusing fewer than 0.2 percent of nondiscriminators.”
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Weekend reading: “ Increasing public investment” edition

This is a post we publish each Friday with links to articles that touch on economic inequality and growth. The first section is a round-up of what Equitable Growth published this week and the second is relevant and interesting articles we’re highlighting from elsewhere. We won’t be the first to share these articles, but we hope by taking a look back at the whole week, we can put them in context.

Equitable Growth round-up

The evidence is clear: Public investment is an essential driver of productivity and economic growth. Sadly, the evidence also is clear that levels of U.S. public investment have now dropped to a point not seen in decades, at a time when it is most critical due to rapidly growing economic inequality. Policymakers can reverse this trend via two key pathways—investments in infrastructure and human capital—in order to boost private-sector spending in these areas as well, writes Somin Park. And, Park continues, given the current low interest-rate environment, the U.S. government should capitalize on this moment to deliver higher growth and lower inequality for everyone.

Is competition or a monopoly better at spurring innovation? The age-old question gets an answer—at least, in terms of the pharmaceutical industry—in a new working paper that looks at so-called killer acquisitions, in which an incumbent firm acquires a potentially competitive product while it’s in development and subsequently terminates the development of that product. This consolidation is probably stifling innovation, rather than boosting it, writes Raksha Kopparam in a blog post describing the working paper and its findings. Because killer acquisitions typically occur when the incumbent drug-maker has significant market power, the acquisitions are likely to prevent innovation and competition in the very markets where a new drug would have the most impact. Enforcers should be aware of this as they review these types of transactions, Kopparam concludes, to help patients access new and better products at lower costs.

Links from around the web

With Sen. Bernie Sanders (I-VT) this week releasing his plan for taxing wealth, the idea of increasing taxes on the richest Americans appears to be catching on with candidates for the Democratic presidential nomination. Though Sen. Sanders’ proposal, and Sen. Elizabeth Warren’s (D-MA) before it, would face major political hurdles prior to a potential enactment, “these proposals represent the broadest rethinking of tax policy in decades,” write Nelson D. Schwartz and Guilbert Gates in The New York Times. But, they ask, how would the ideas with the most traction at the moment—implementing a wealth tax, raising the marginal tax rate, increasing the estate tax, and rethinking the capital gains tax—actually work?

Earlier this week, Rep. Alexandria Ocasio-Cortez (D-NY) unveiled a package of bills aimed at cutting poverty in the United States by expanding access to federal benefits and updating the federal poverty line to include expenses such as childcare and internet access, as well as adjusting the poverty limit based on a person’s location. “If we can acknowledge how many Americans are actually in poverty, I think that we can start to address some of the more systemic issues in our economy,” Rep. Ocasio-Cortez told NPR’s Steve Inskeep this week. For the record, the U.S. Census Bureau estimates that approximately 40 million Americans live in poverty, including more than 13 million children.

The federal family and medical leave system in the United States has not changed since President Bill Clinton signed the Family and Medical Leave Act of 1993—more than 26 years ago—and that law leaves much to be desired, writes Daria Dawson for Essence. For one thing, it only provides 12 weeks of unpaid leave to a very restricted group of workers. “Paid leave is not just a women’s issue. Nor just a white women’s issue. Nor just a family issue. It is a healthcare issue. It is an economic issue,” and, she continues, “paid leave is an issue that voters care very deeply about.” So, why is it that only 15 percent of American workers have access to a paid family leave program through their employers? As Dawson concludes, it’s time to give federal family and medical leave a 21st century makeover.

Under current law, the secretary of Health and Human Services is unable to negotiate directly on the costs of prescription drugs covered by Medicare, which leads to higher drug costs for patients because private insurers don’t have the same leverage that the federal government does in these negotiations. But a new bill proposed by House Democrats seeks to change this practice for up to 250 of the most expensive drugs without generic or biosimilar competition while also penalizing companies that refuse to negotiate with HHS. The bill comes amid increasing bipartisan momentum on the topic of prescription drug regulation, reports Li Zhou for Vox, largely due to voter pressure on lawmakers to act.

Noncompete agreements hinder millions of U.S. workers from accessing better jobs and lower the wages of these workers by reducing competition. A handful of states have banned noncompete agreements, including Oregon, which passed a law in 2008 to prevent the practice across the board—and a recent study shows that wages for workers no longer bound by noncompete clauses increased by as much as 21 percent as a result. “Put plainly,” writes The New York Times Editorial Board in a piece lamenting the broad use of noncompetes, “the old rule allowed employers to suppress their workers’ pay.”

Friday Figure

Figure is from Equitable Growth’s “Public investment is crucial to strengthening U.S. economic growth and tackling inequality,” by Somin Park.

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Killer acquisitions lead to decreased innovation and competition in the U.S. prescription drug market

There is a long-running debate in economics about whether monopolies or competition spur innovation. This debate is sometimes known as the Schumpeter-Arrow debate after the views of Austrian economist Joseph Schumpeter, who argued monopolies promote innovation, and Nobel Prize economist Kenneth Arrow, who argued that competition drives innovation. In their new working paper, “Killer Acquisitions,” co-authors Colleen Cunningham of the London School of Business and Florian Ederer and Song Ma, both of the Yale School of Management, take a look at today’s U.S. pharmaceutical industry to assess how acquisitions play into this debate today.

The co-authors find that consolidation in the pharmaceutical industry is probably stifling rather than promoting innovation. Approximately 6 percent of pharmaceutical acquisitions are what the authors refer to as “killer acquisitions,” in which an incumbent firm acquires a product in development that could compete with the incumbent’s own product and then subsequently terminates development of the target firm’s product, thus killing competition and innovation.

An example of this kind of acquisition that the three researchers examined is Questcor Pharmaceuticals Inc.’s acquisition of the drug Synacthen from Novartis International AG of Switzerland. United States-based Questcor in 2000 held a monopoly over an adrenocorticotropic hormone drug called Acthar, the then-dominant treatment for rare epileptic diseases such as infantile spasms. In 2000, Acthar was priced at roughly $40 a vial. In the mid-2000s, however, Novartis began developing Synacthen, a synthetic version of Acthar. In 2013, Questcor acquired the production rights for Synacthen and shut down development of the drug shortly thereafter.

As a competitor to Acthar, Synacthen would have been a cheaper alternative that would have taken away significant market share from Questcor. Today, Acthar costs $39,000 a vial, which is a 97,000 percent increase in price over 19 years.

Cunningham, Ederer, and Ma examined how common this type of acquisition is in the U.S. pharmaceutical industry. They find that a pharmaceutical company with an existing product has less incentive to undertake the costs of developing a competing product than to acquire a new product if the new product competes with its existing product. The new product, if successful, could be due to the cannibalized sales of the company’s existing product or the firm could have an incentive to purchase the product in development at a competing firm and shut down its development to eliminate a potential competitive threat to its existing product.

Using data on drug development, acquisitions of drug products, and overlap between drugs, the authors find evidence that a number of killer acquisitions such as these examples above are common in the U.S. pharmaceutical industry. Drug companies complete development of only 13.4 percent of projects when there is an overlap with an existing product. Moreover, projects are less likely—28.6 percent, according to the paper—to be completed if an incumbent firm acquires the firm than if a project remains with the original company. These results also hold when compared to acquired projects within the same target firm. Further, the authors reject a variety of alternative explanations for these results such as information asymmetries (buyers acquiring low-quality products, the redeployment of technology or capital toward production, or others).

According to the three co-authors, killer acquisitions harm consumers by eliminating both new products and competition, but they benefit the incumbent firm, the developer, and the other firms in the market. The authors caution, however, that a comprehensive analysis of these types of acquisitions is more complicated. Companies, for example, may undertake more product development if there is a possibility that it can develop a product and sell it to another company. In other words, allowing killer acquisitions by increasing the expected return on innovation may lead to more products overall—even if each individual killer acquisition eliminates competition.

Nevertheless, the authors are doubtful that such an effect justifies allowing killer acquisitions that create “significant ex-post inefficiencies resulting from the protection of market power.” They argue that preventing killer acquisitions would increase competition in the pharmaceutical market today. The more competition there is, the less valuable it is for an incumbent pharmaceutical firm to try to eliminate potential competition, they contend, because in a competitive market, there is less benefit in eliminating a potential additional competitor via acquisition since there are too many remaining competitors.

The three co-authors suspect that this competitive dynamic is likely to be larger than the impact of increased incentives for pharmaceutical companies to try to develop new products in the hope that another company will pursue a killer acquisition. According to their model, killer acquisitions are most likely to occur in markets where the incumbent drug maker has substantial market power. Therefore, these types of acquisitions are likely to prevent innovation and competition in the very markets where a new drug would likely have the most significant impact.

This new working paper has important implications for U.S. competition policy and antitrust enforcement. It suggests enforcers, in the first instance, and courts, in the final instance, should be more skeptical of transactions in which an incumbent pharmaceutical company acquires a product in development that could be a competitive threat. Historically, concerns about potential competition have been secondary in antitrust enforcement. In addition, courts have been skeptical of such theories. Such an approach—particularly in the pharmaceutical industry—may be denying patients new and better products, while increasing the cost of prescription drug prices.

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Public investment is crucial to strengthening U.S. economic growth and tackling inequality

Despite policymakers’ oft-repeated promises of more spending on infrastructure and other key investments, U.S. public investment has reached new lows. Public investment is a key driver of long-term productivity and economic growth. The evidence shows that investments in infrastructure and human capital are critical to ensuring future prosperity in the U.S. economy, particularly when inequality is high. It is time policymakers made a serious commitment to increasing public investment.

Failing to make important public investments dampens overall U.S. productivity and growth and disproportionately hurts low-income families and children. Public investments are critically important now, in a time when economic inequality constricts strong and stable growth by obstructing the supply of people and ideas into the economy and limiting opportunity for those not already at the top.

The decline of public investment and the rise of economic inequality

At around 1.4 percent of Gross Domestic Product, federal investment today stands at the lowest level since 1947. The decline in state investments has been less dramatic but still significant. Spending by state and local governments on all types of capital dropped from its high of 3 percent of GDP in the late 1960s to less than 2 percent now. (See Figure 1.)

Figure 1

Beginning in the mid- to late 1970s, economic inequality also started to increase. The fruits of economic growth accrued disproportionately to those at the top of the income ladder. The most recent data on the distribution of U.S. income by Gabriel Zucman and Emmanuel Saez at the University of California, Berkeley show that the share of total economic income held by the top 10 percent hit 40 percent in 2012, before dropping to 38.4 percent by 2016, the most recent year for which complete income-distribution data are available. The rise of more than 10 percentage points started from lows of around 30 percent in the 1960s and 1970s. (See Figure 2.)

Figure 2

Robust U.S. public spending today is key to future economic growth and prosperity

For strong, stable, and broadly shared U.S. economic growth, federal, state, and local governments must make more investments to ensure that people with talent are able to acquire skills and to access capital. There are two key pathways for this increased public spending on physical capital and on human capital—both of which will build the base upon which private-sector spending can thrive.

Infrastructure

Spending on infrastructure is essential to strong and stable economic growth. There is a long list of pressing infrastructure needs that policymakers can target, including roads and bridges, public transportation, clean air and water systems, and energy-efficient power generation. The state of the country’s infrastructure has a real impact on families’ well-being and the economy’s ability to grow.

It is often poorer areas that are in need of repairing outdated infrastructure, such as aging lead pipes. Five years after the (still ongoing) water crisis in Flint, Michigan began—which occurred when the city switched water sources to reduce deficits—Newark, New Jersey, is now facing a similar crisis, predominantly affecting low-income and black residents. The failure to provide safe and clean water threatens current and future economic growth as lead accumulation harms the immediate well-being of residents, as well as the development of children who will later enter the workforce.

Investment in public transportation is essential to physical access to opportunity and economic mobility. An unreliable and inefficient transportation system not only hurts productivity and economic growth, but also disproportionately impacts low-income families. Research shows that commute times are a strong predictor of upward mobility—stronger than even crime or school test scores. Harvard University’s Raj Chetty and Nathaniel Hendren, alongside UC Berkeley’s Patrick Kline and Emmanuel Saez, find that children from areas where more residents have a long commute to work have a significantly lower chance of moving up the income ladder. Public transportation also determines access to education, healthcare, and other essential services for many families.

The list of the country’s infrastructure needs goes on and on. One-third of interstate highway bridges are more than 50 years old, for example, and need to be repaired or replaced. Nearly one-quarter of the U.S. population lives in low broadband-subscription neighborhoods, where less than 40 percent of residents have access to high-speed internet. Big public construction projects to address these needs, like those undertaken by the Works Progress Administration in the 1930s amid the Great Depression, can create a significant number of well-paying jobs and spur job growth in local economies, especially during an economic downturn.

Human capital

Public investments in education and other investments in human capital have great consequences in an era of high economic inequality. Economists Brad DeLong at UC Berkeley and Claudia Goldin and Lawrence Katz at Harvard argue that education played a critical role in boosting U.S. economic growth in the 20th century and make the case for more investment:

During the twentieth century, America’s investment in education was a principal source of its extraordinary performance … A renewed commitment to invest in education is probably the most important and fruitful step that federal, state, and local officials can take to sustain American economic growth.

Despite the evidence of positive educational and economic outcomes, public colleges and universities in most states now receive most of their revenue from tuition rather than government funding. Chronic disinvestment in Kindergarten through 12th grade education has also prompted a wave of teacher strikes across the country, as spending levels have still not recovered from deep cuts made during the Great Recession.

Public investment in early childhood programs and high-quality childcare also is critical in sustaining and growing the current and future productivity of the U.S. economy. The steep costs of childcare and education shut out low- and middle-income families and block their children from fully developing their human capital, while those at the top have the resources to safeguard the best environment for their children. Research shows that rising childcare costs drive women out of the workforce because parents come to depend more on informal childcare arrangements that are less reliable. Investing in early childhood care and education also matters for the children and their future outcomes. The failure to invest in a critical stage of human capital development deprives the United States of future workforce productivity.

What’s more, investment in low-income children often more than pays for itself because it raises their future earnings and decreases their dependence on public aid, as new research shows. Examining 133 policy changes from the past five decades, Harvard economists Nathaniel Hendren and Ben Sprung-Keyser conclude that programs for low-income children have the highest return on government investment. With the caveat that return on investment is just one measure of success, the authors find that the investments in children’s health and education they examine were fully repaid and with surplus. They also find investment in children through young adulthood continues to generate positive results.

Private investment

Public investments pave the way for private-sector innovation and growth. Many of the biggest advances in economic productivity, innovation, and technological capacity have been the result of government action.

The internet was originally a project funded by the Department of Defense, and NASA maintains a catalogue of thousands of technologies that became commercial products. The Apollo Space program, which sent the first astronauts to the moon 50 years ago, helped accelerate innovation and create technologies that had widespread use and application. They included the integrated circuit—the basis of what is in computer chips today—which helped launch Silicon Valley and the computer revolution.

In her book The Entrepreneurial State: Debunking Public vs. Private Sector Myths, University College London economist Mariana Mazzucato highlights the role of government investment at the heart of major technological breakthroughs, noting that Apple Inc. and other successful private companies owe much of their value to government-supported research and development. Nearly all the technologies in the iPhone—including GPS navigation, voice recognition, and touchscreen capabilities—were developed through government investments, while Alphabet Inc.’s Google search engine algorithm was funded by the National Science Foundation. It’s evident that public investment encourages and facilitates innovation in the private sector.

Conclusion

Given the current low interest-rate environment, the U.S. government should capitalize on the low costs of borrowing by making big investments now. Doing so would deliver higher growth and lower inequality. Economic inequality subverts our public institutions and the policymaking process needed to support the economy— as Equitable Growth President and CEO Heather Boushey argues in her new book, Unbound: How Inequality Constricts Our Economy and What We Can Do About It. Rising economic inequality is behind a growing imbalance between what people want and the outcomes of policymakers’ decision-making about government revenue and public investment levels.

There is wide public support for public investments— and even for the taxes that will fund them, as long as they are put to good use. But the policy priorities in Washington tend to align with the preferences of the wealthy and don’t necessarily support the growth of the whole economy. This needs to change. The broader economy will reap the benefits of a well-educated labor force and steady stream of entrepreneurial ventures.

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Brad DeLong: Worthy reads on equitable growth, September 14–20, 2019

Worthy reads from Equitable Growth:

  1. Heather Boushey in Politico provides a platform to argue for distributional national accounts. Read “How To Fix Inequality: Publish Distributional, Not Just Aggregate, Growth Data,” in which Boushey writes: “To tell us how Americans—low-, middle- and high-income alike—are faring in the current economy, relative to other groups and to the average, federal agencies need to produce distributional statistics alongside the aggregate ones. That means offering not just one estimate of growth but several: growth for those with different levels of income, of different races and ethnicities, and also for variation by state or other levels of geography. Legislation has been passed that encourages the [Bureau of Economic Analysis] to add the disaggregated data, but the law provides no new funding and doesn’t go beyond encouragement. If we do not change the way we conceptualize and analyze economic progress, we are unlikely to have very much of it. Better, fairer growth measures are a vital step toward better, fairer growth.”
  2. This is very, very much worth reading: “Research on Tap: Unbound,” a Twitter round up of the event earlier this week in which “Equitable Growth celebrated the release of Heather Boushey’s book, Unbound: How Inequality Constricts Our Economy and What We Can Do About It. She was joined by Sandra Black, Atif Mian, and Angela Hanks for a conversation moderated by Binyamin Appelbaum.”
  3. This is key to why distributional national accounts are becoming increasingly essential for understanding what is going on in the U.S. economy. Read Heather Boushey’s written “Testimony before the House Budget Committee,” in which she writes: “National economic statistics are becoming less representative of the experience of most Americans. The implication for how policymakers and economists alike evaluate the economy is that average economic progress is pulling away from median economic progress. We see these same divergent trends across multiple measures of economic well-being: wages, income, and wealth.”

Worthy reads not from Equitable Growth:

 

  1. Perhaps the most interesting thing to happen in U.S. political economy over the summer was the Business Roundtable’s declaration that it no longer believed in “shareholder primacy,” the doctrine that a corporation’s managers have a twofold—and only twofold—duty: obey the law and maximize the stock market value possessed by its shareholders. All other considerations are, according to shareholder primacy, not the proper business of the corporation. Instead, they are the business of the government officials who make the laws and write the regulations to enforce them, the politicians who compete to boss around government officials, and the voters who elect them. The alternative view was always that shareholders were just one of the groups of stakeholders—albeit one of the most important groups by virtue of their status as residual claimants and their powers to choose corporate officers—whose interests were to be advanced and balanced. Here, my old teacher Mike Spence has smart things to say about the possible advantageous consequences that opening the door to the possibility of moving away from shareholder primacy might produce, in his “The End of Shareholder Primacy?” In this essay, he writes: “An even more exciting feature of the shift toward socially conscious corporate governance is that it opens the door for new, more creative business models … Alibaba [was] founded with the goal of expanding market access for small and medium-size companies. … [and] remain[s] committed … Mukesh Ambani … identified Reliance’s stakeholders as the ‘Indian economy, Indian people, our customers, employees, and shareowners’ … Digital technologies tend to come with high fixed costs, but low to negligible variable costs. Once established, a firm like Alibaba or Jio can thus provide a platform for countless other business models built around social objectives. And this effect is especially powerful in potentially large markets like China, India, Indonesia, Brazil, and the United States. The Business Roundtable’s recent declaration represents a major step forward for the multistakeholder model. The example set by industry leaders matters. And it is no accident that some of today’s most successful global companies were explicitly conceived and built on the basis of multistakeholder values.”
  2. Nixon, Reagan, Trump—the truth is that Republican presidents have never regarded the independence of the Federal Reserve as something to be respected. They did, however—before President Trump—regard “appearing” to respect the independence of the Federal Reserve as something to try to accomplish. Read Bob Bryan, “Trump’s attacks on the Fed may be intense, but they’re nothing compared to a wild new story about Ronald Reagan from former Fed Chairman Paul Volcker,” in which he writes: “Trump’s attacks on the Fed may be intense, but they’re nothing compared to a wild new story about Ronald Reagan from former Fed Chairman Paul Volcker … Volcker recounts being privately ordered by Reagan’s chief of staff [James Baker] to not raise interest rates prior to the 1984 election while Reagan was in the room. Volcker was not planning to raise interest rates at the time, but said he was ‘stunned’ by the direct violation of the Fed’s independence … According to Volcker, Reagan did not say a word, but Baker delivered a strong message: ‘The president is ordering you not to raise interest rates before the election,’ Baker told Volcker … Reagan’s apparent intimidation also echoed former President Richard Nixon’s disastrous pressure on former Fed Chair Arthur Burns to keep rates low, which is seen as one of the reasons for the inflation of the 1970s.”
  3. It is a very curious thing that preindustrial societies were, by and large, about as unequal in terms of relative income as we are today. It does suggest that something like Vilfredo Pareto’s Iron Law is operating, although how it could operate is beyond me. And it does suggest that Thomas Piketty was correct in his fear that the post-World War II “trentes glorieuses” age of social democracy from 1945 to 1975 was a fragile anomaly. This, however, fits less well with Piketty’s recent argument that our current second gilded age was generated by the descent of the center-right into neofascism and the descent of the center-left into cultural liberalism as it took its eye off the important ball that is the distribution of wealth and hence of social power. It is also worth noting that preindustrial inequality was much more vicious than modern inequality: Push preindustrial inequality up by an additional fifth or more, and large numbers of people start dying from malnutrition. Read Branko Milanovic, Peter H. Lindert and Jeffrey G. Williamson, “Pre-Industrial Inequality,” in which they ask and answer: “Is inequality largely the result of the Industrial Revolution? Or, were preindustrial incomes as unequal as they are today? This article infers inequality across individuals within each of the 28 preindustrial societies, for which data were available, using what are known as social tables. It applies two new concepts: the inequality possibility frontier and the inequality extraction ratio. They compare the observed income inequality to the maximum feasible inequality that, at a given level of income, might have been ‘extracted’ by those in power. The results give new insights into the connection between inequality and economic development in the very long run.”
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