INDUSTRIAL POLICYMiracle, or Marginal Gain?

From 1960 to 1989, South Korea experienced a famous economic boom, with real GDP per capita growing by an annual average of 6.82 percent. Many observers have attributed this to industrial policy, the practice of giving government support to specific industrial sectors. In this case, industrial policy is often thought to have powered a generation of growth.

Did it, though? An innovative study by four scholars, including two MIT economists, suggests that overall GDP growth attributable to industrial policy is relatively limited. Using global trade data to evaluate changes in industrial capacity within countries, the research finds that industrial policy raises long-run GDP by only 1.08 percent in generally favorable circumstances, and up to 4.06 percent if additional factors are aligned — a distinctly smaller gain than an annually compounding rate of 6.82 percent.

The study is meaningful not just because of the bottom-line numbers, but for the reasons behind them. The research indicates, for instance, that local consumer demand can curb the impact of industrial policy. Even when a country alters its output, demand for those goods may not shift as extensively, putting a ceiling on directed growth.

“In most cases, the gains are not going to be enormous,” says MIT economist Arnaud Costinot, co-author of a new paper detailing the research. “They are there, but in terms of magnitude, the gains are nowhere near the full scope of the South Korean experience, which is the poster child for an industrial policy success story.”

The research combines empirical data and economic theory, using data to assess “textbook” conditions where industrial policy would seem most merited.

“Many think that, for countries like China, Japan, and other East Asian giants, and perhaps even the U.S., some form of industrial policy played a big role in their success stories,” says Dave Donaldson, an MIT economist and another co-author of the paper. “The question is whether the textbook argument for industrial policy fully explains those successes, and our punchline would be, no, we don’t think it can.”

The paper, “The Textbook Case for Industrial Policy: Theory Meets Data,” appears in the Journal of Political Economy. The authors are Dominick Bartelme, an independent researcher; Costinot, the Ford Professor of Economics in MIT’s Department of Economics; Donaldson, the Class of 1949 Professor of Economics in MIT’s Department of Economics; and Andres Rodriguez-Clare, the Edward G. and Nancy S. Jordan Professor of Economics at the University of California at Berkeley.