As SIGnal readers will recall, the American shift away from free markets to government-guided industrial policy began with President Trump’s “economic nationalism” policies and became bipartisan dogma during Biden’s 2020 campaign. Its public face at the time was Jake Sullivan, a foreign-policy Wunderkind (and famously nice guy) in Hillary Clinton’s State Department who spent the Trump years leading a crack team of Obama administration exiles in search of a “foreign policy for the middle class.” Their boss at the Carnegie Endowment for International Peace was State Department legend Bill Burns, now with four years as CIA director under his belt, just as Sullivan has spent those years as national security adviser. A middle-class foreign policy might even be best understood as a Democratic re-conception of economic nationalism. In both cases, it is security, a/k/a China, that is driving economic policy, which is why the guiding principle for both parties has become economic dominance and supply-chain security rather than efficiency of production within a global market.
It is worth pausing to consider what a profound change this is proving to be. At the Council on Foreign Relations yesterday, Benn Steil, who is no one’s idea of a socialist, crossed the Rubicon and affirmed that the post-Cold War dogma of free trade, based on the venerable theory of maximal production rooted in the pursuit of comparative advantage, has had its day. As he put it, “competitive advantage can be manufactured by a government.” The government he had in mind was that of the Chinese Communist Party. His example was electric vehicles.
The New York Times’s economy reporter Lydia DePillis rather pointedly asked what took so long. Hadn’t free-market purism been dead for a while already? The CFR discussion was occasioned by an article Steil co-wrote with Columbia Law School tax professor Alex Raskolnikov. The latter responded to DePillis’s question by lightly acknowledging that the experts, attached as always to their theories, had lagged behind reality. Steil took a different tack, arguing that economists had been misled by their ingrained assumption that technological change is “exogenous” to an economy and therefore to economics. Steil believes that is not quite the case, and CCP investment in electric-vehicle technologies was the illustration. In that sector and others, China had “manufactured” its comparative advantage rather than acquiring it by the more “natural” (or “endogenous”) means that have underpinnned economic theory since David Ricardo (1772-1823) and Britain’s definitive embrace of free trade over protectionism (1846). Technological change, or innovation, has always been the joker in the pack of mainstream economics. Now the world’s major economies are playing that card. Who knows where it will lead?
One answer can be found in a contest co-sponsored by Jordan Schneider’s indispensable substack ChinaTalk. (The other sponsors were the Federation of American Scientists, economics blogger Noah Smith, and the Fletcher School’s Chris Miller, author of Chip Wars). The contest challenge was to develop policies to counter China’s manufactured competitive advantage in making basic semiconductor chips — “trailing edge” technologies as distinct from “leading edge” ones. As with EVs, batteries, solar panels and much else, China is grabbing market share in basic semiconductors through state-led policy even as the U.S. labors mightily to prevent its advance in leading-edge innovation. As ChinaTalk explained, the problem is that Chinese trailing-edge chips are ubiquitous in today’s products and the microelectronic networks that tie together the digital world. That presents at once a security and an economic vulnerability.
The contest winners generated a fantastic set of out-of-the-box policy options. They include “weaponizing” the U.S. advantage in electronic design automation (EDA) software and imposing an “open design” framework for basic semiconductor production. It would undercut China’s pricing power and be enforced through a production cartel dominated by the U.S. and politically like-minded states together bending their tech sectors to strategic purposes. The long arc of technology innovation that began with the Cold War policy milieu that birthed transistorization, semiconductors and the Internet in the 1960s, then ran through the Silicon Valley privatization of digital networks in the 1980s, ’90s and 2000s, is returning to its public-private roots. This is perhaps not quite what Trump and Steve Bannon had in mind with economic nationalism circa 2016, but it is what we have got.
The ChinaTalk proposals are both arresting and somewhat disturbing. Would the Austrian School philosopher-economist Friedrich Hayek — referenced as a touchstone in Steil and Raskolnikov’s article — have embraced a Free World software-design cartel? Is the expansion of freedom and open societies really served by such market-manipulating strategies? An important article earlier this month by CFR’s new president (and former U.S. trade representative), Michael Froman, makes clear that this is the question of the day.
The economics answer is probably still no. The security answer seems to be a reluctant yes. There remains the sphere of retail politics in leading democracies. (Autocracies like China and Russia have long since decided that free global markets were an imperialist trick to secure first-mover advantages circa 1890. CCP policy can be seen as a descendant of the McKinley Tariffs of that year.) Voters cannot be expected to have the ins and outs of Ricardian theory at their fingertips as they weigh whom to choose for president. Kamala Harris, advocating subsidies rather than tariffs, has tried to portray Donald Trump’s tariff proposals as a tax hike. Economics is on her side; as Froman wrote, “the costs of tariffs are ultimately born by the purchaser,” and disproportionately by poorer consumers. But simply calling your opponent’s tariff a tax and standing pat is unlikely to register with many voters.
Economic policy will always be made by experts. As Raskolnikov said, experts are now catching up with reality. But their willingness to accommodate economic nationalism will only go so far. For now, politics is likely to continue to run ahead of policy.