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Working Paper 98-15
THE CHANGING NATURE OF FIRMS AND GOVERNMENTS
IN A KNOWLEDGE-BASED GLOBALIZING ECONOMY*
by
John H. Dunning
1. INTRODUCTION
There are signs that the global economy is entering into a new
stage of market-based capitalism which may be distinguished from
those which preceded it in three main ways. First, in contrast
to the land based capitalism of the pre-industrial era and machine
and finance based capitalism of the nineteenth and much of the twentieth
century, the capitalism of the 1990s is becoming increasingly knowledge
based1. It has, for example, been estimated that,
whereas in the 1950s, 80% of the value added in US manufacturing
industry represented materials and 20% knowledge, by 1995 these
proportions had changed to 30% and 70% respectively (Stewart 1997).
No less significant, the book value of the tangible assets of corporations
is becoming a decreasing proportion of their market value.
One estimate (Handy 1990) puts this at between 25% and 33%, while
Leif Edvinson (1997) has more recently calculated that, for most
organizations, the ratio of the value of their intellectual capital
to that of their physical and financial capital is between five-to-one
and sixteen-to-one. Finally, capital spending on information
technology, which in 1965 was only one-third of that of production
technology, now exceeds it (Stewart 1997). Throughout economic
activity, created intangible assets are replacing natural tangible
assets as the main source of wealth creation in industrial societies.
Inter alia, this is demonstrated by the rising importance of services,
relative to that of goods, in the gross national output of most
countries2.
Secondly, the territorial horizons of capitalism - as proxied by
the spatial sourcing of inputs and the location of production and
the markets served by firms -, have continuously widened from the
sub-national to the national and macro-regional and now, increasingly,
to the global. Over the last two decades, for example, the
growth of world trade has consistently outpaced that of world output;
while in the mid-1990s, the sales of the foreign affiliates of multinational
enterprises (MNEs) exceeded that of world trade by 25% (UNCTAD 1997).
Moreover, between one-third and one-half of trade in non-agricultural
products, and between one-half and three-fifths of all capital and
technology flows are now internalized within MNEs. At the
same time, while the intangible assets of firms have become increasingly
mobile across national borders, the location of their creation and
use has become increasingly influenced and determined by the presence
of spatially immobile clusters of complementary value added activities.
Thus, in the words of Ann Markusen (1994) globalization presents
us with a paradox of the presence of `sticky places within slippery
space' (Markusen 1994).
Thirdly, the dominant organizational modality of market based activity
is evolving from that of hierarchical capitalism to that best described
as alliance capitalism3. While retaining many of
the characteristics of hierarchical capitalism, the distinctive
feature of its twenty-first century successor is the growing extent
to which, in order to achieve their respective economic and social
objectives, and to meet the dictates of the international marketplace,
the main stake-holders in the wealth-creating process are needing
to cooperate more actively and purposefully with each other.
Such cooperation is, perhaps, best demonstrated, first, by the growth
of on-going inter-firm cooperative ventures4; second,
by the emergence of closer and more clearly delineated intra-firm
relationships; and third, by the recognition by governments and
firms, alike, of the need to work together if societal economic
goals, for which the former is ultimately responsible, are to be
best achieved.
These characteristics of contemporary Western based capitalism,
which are compared with those of previous stages in Table 1, are
having a profound effect on our understanding of the role of firms,
markets and non-market institutions - including governments, at
all levels; and on the extent and form of the interaction between
them. Each, of course, reflects a series of dramatic and far-reaching
world economic and political events which have occurred over the
past 20 - 30 years. In this paper, we will concentrate on
one such event, viz the impact of recent knowledge-based advances,
which, we believe, alongside the renaissance of market-based economic
systems, and the emergence of several new players in the world economy,
has been the critical factor affecting both the nature and functions
of firms and particularly large MNEs, and the attitudes
and actions of governments. We now turn to deal with each
of these aspects of knowledge-based change in turn.
Click here to down load Table 1 in Adobe Acrobat
2. TOWARDS A NEW PARADIGM OF THE FIRM
The firm has long since been the main unit of production in a market
based economy. But, it is only comparatively recently that
economists have considered the firm as a creator of assets, as well
as a utilizer of assets. Most of the neoclassical theory of
the firm, for example, was concerned with how, given a certain level
of created assets notably technology - the human, physical
and financial resources, which a firm might acquire in the open
market, might best be used to produce the output of a particular
good or service at the lowest possible cost.
Today, not least as a result of a series of watershed advances
in technology, but also of changing consumer preferences, a firm's
commercial success or competitiveness is more likely to be judged
by its ability to innovate and market new products and to upgrade
the quality of its existing products. In turn, this ability
will be affected by the correctness (or otherwise) of a whole set
of strategic decisions, such as those to do with choosing the right
portfolio of locations, both to produce or acquire, and to manage
rather than exploit wealth creating assets; and how best to coordinate
the search for, and deployment of, these assets. For example,
in the international arena, should it be via foreign direct investment
(fdi), cooperative ventures or arm's length trade?
It is the combination of technological change and the opening up
of regional and global markets which has been the primary cause
of the reconfiguration of the kind and range of value added activities
undertaken by firms, their spatial dimensions and their organizational
forms. Thus, for example, MNEs are increasingly seeking to
both exploit and augment their home based technological assets from
foreign locations5; and they are doing so both by deepening
their value added activities in these locations, and by engaging
in synergistic alliances with foreign firms. It is the growth
of these alliances which is extending the `soft' boundaries of firms
and fostering alliance capitalism. At the same time, many
MNEs and other large firms are down-sizing the range of their value
added activities6; however they are not replacing these
by arm's length transactions, but by a series of on-going and `hands-on'
technological and marketing relationships with their new suppliers,
customers and competitors.
In Table 2 we set out some of the main components of the emerging
paradigm of the firm in a knowledge based economy, and compare and
contrast these with the more traditional paradigm contained in most
textbooks on micro-economics. Clearly, not all firms fit into
the new paradigm, but most do in one way or another.
Click here to down load Table 2 in Adobe
Acrobat
The facts and ideas set out in Table 2 are largely self-explanatory.
We would, however, make three comments which encapsulate both the
main thrust of actual events and the development of scholarly thinking.
1) Since an integral feature of a knowledge based economy is that
of change and uncertainty, and the continual upgrading of intellectual
capital, it is imperative that any new paradigm of the firm should
pay particular attention to these elements. This is now being
increasingly accepted by economists and business strategists, and
particularly by those who view the firm as a dynamic institution
which is continually reconfiguring its resources and managerial
capabilities by innovation and learning experiences7.
2) Second, since the competitive advantages of firms relate as much
to their ability to identify, access and harness assets which are
complementary to their core competencies, as to these competencies
themselves, any new paradigm of the firm must encompass extra-firm
value added activities within its purview. As recently articulated
by Professor Lars Engwall at an OECD Conference in Stockholm, the
idea of the firm as an `island of conscious power' is giving way
to the firm as `a node in a network of intra- and inter-firm relations.'
The conceptual framework for this reconfiguration has been set out
in another paper by the author (Dunning 1995 (reprinted in Dunning
1997a)), but, essentially, this gives more attention to the net
benefits of alternative organizational options open to firms, as
they seek to forge productive intra- and inter-firm collaborations.
The critical question here is: What are the optimum combinations
of these alternative forms, and how far are these combinations dependent
on the value of contextual variables (such as industry, country
and firm-strategic specific circumstances)?
3) Thirdly, any new paradigm of the firm must pay particular heed
to the spatial configuration of economic activity (and, in particular,
to that forged by foreign direct investment and cross-border alliances)
as a means of exploiting and enhancing its core competencies.
Because of the growing importance of macro- (supra-national) and
micro- (sub-national) regions as economic units, issues such as
the economies of regional integration and those of the spatial agglomeration
of related activities are now gaining increasing attention.
Here, some interesting work is being done both by economists and
industrial geographers as they seek to identify both optimum spatial
areas for particular kinds of economic activity, and the ingredients
of industrial clusters which best promote the interests of members
of the cluster. From the firm's perspective, the main question
of interest revolves around how best to organize its portfolio of
unanchored assets across geographical space; and how, in turn, this
balance is affected by industry and firm specific contextual variables.
The ability of most firms8 - both large and small
- to cope with the demands of the knowledge-based globalizing economy
essentially rests on the extent to which they can summon the necessary
organizational capacity to respond to the challenges posed by these
three features.
3. TOWARDS A NEW PARADIGM OF NATIONAL GOVERNMENT
We have suggested that alliance capitalism is currently being fashioned
by technological change, as is the spatial dimension of business
activity. But, it has been the renaissance of the market system
and the liberalization of individual markets, together with the
acceptance by governments of the benefits of regional economic integration,
and the need for a more systemic harmonization of investment and
trading regimes, that has set a new macro-economic and organizational
environment have conditioned the reactions of businesses to technological
change.
Thus, in recent years, most national governments - of both developed
and developing countries - have substantially reduced barriers to
trade and fdi; and (for good or bad) have permitted, and even encouraged,
more cross-border mergers and acquisitions. In many instances,
governments (including sub-national authorities), in the belief
that they compete with each other to acquire scarce created
mobile assets, have stepped up their incentives to foreign investors9.
Others have recognized the need to improve the supportive (domestic)
services for such investment over which they have some control or
influence, e.g. human and physical infrastructure; and where it
is desirable to do so, to foster the spatial agglomeration of related
activities.
In seeking to respond to, and indeed influence, the events of the
last two decades, and those likely to occur in the next two decades,
governments - and particularly Western governments - need to draw
upon a new paradigm of governance. Paradigms which have stood
the test for most of the present century are no longer appropriate
for the knowledge-based and globalizing economy of the later 1990s.
Table 3 summarizes some of the ways in which the characteristics
and scope of governments in the economic realm have changed, and
are continuing to change. Again, these are reasonably self-explanatory,
but we would highlight four distinctive and inter-related features
of the new paradigm.
Click here to down load Table 3 in Adobe Acrobat
1) In a global economy, in which knowledge related assets can flow
easily across national borders, national governments have only a
limited autonomy in their economic strategies and policies10.
In effect, many governments do compete with each other for such
assets, even though trade in these, or their rights, is rarely a
zero sum game.
2) In spite of the deregulation and the liberalization of many markets,
the role of governments in affecting the creation and utilization
of immobile assets, critical to the economic prosperity of the constituents
under their jurisdiction, is increasing. This is because market
failure is generally more pronounced in the provision of these assets
- and especially those complementary to the core competencies of
firms - than in the provision of natural assets.
This market failure - in its various guises11 - is especially
noticeable in the less specialized areas of human resource development,
in innovatory activities, and in the provision of capital intensive
public goods, which have a long pay-back period.
3) We earlier suggested that the more successful firms in the contemporary
world economy, are restructuring the scope and depth of their value
added (by externalizing their non-core activities); and revamping
their organizational structures (e.g. by flattening their hierarchical
pyramids). Likewise, we believe, if they are to be successful
in the pursuance of their economic and social strategies, governments
need to reconsider the content of their tasks and the way in which
they coordinate these, both internally and with other economic institutions.
Elsewhere (Dunning 1994) we have argued that while globalization
may require national governments to surrender some of their traditional
tasks to the marketplace, those which remain are no less vital to
the economic welfare of their constituents. Therefore, we
would assert that, even allowing for the reformulation of the role
of government suggested by such scholars as David Osborne and Ted
Graebler (1992), the need for strong and efficient and entrepreneurial
government is as great as it has ever been.
4) One consequence of the above three features is that the optimum
locus or level of governance is requiring reexamination. On
the one hand, one is seeing an increasing role for sub-national
areas of governance as, in their location strategies, firms are
the spatially `sticky' resources provided. On the other, to
minimize market distorting policies by national governments to attract
inbound fdi or foster domestic production, new or strengthened supranational
governance institutions, might be necessary.
Although some East Asian governments are well on the way to accepting
the new paradigm of government, their Western counterparts are,
for the most part, reluctant to embrace many of its facets.
This is partly because old attitudes, opinions and habits - not
to mention institutional rigidities - die hard, governments usually
take a short term perspective on the likely consequences of their
actions.
To some extent, the problem is educating the decision takers in
government. Here, the fault partly lies with the academic
community. We have just not got over the message that there
is a fundamental difference between the kind of government action
necessary to help overcome endemic market failure and to facilitate
the upgrading of the resources within their jurisdiction, and that
which seeks to replace or modify the behavior of firms in the belief
that central planning and regulatory mechanisms can do a better
job in advancing economic and social welfare than can markets.
We have not got over the message that, to optimize their efficiency
and response to market signals, firms require the availability of
created assets and a wealth creating ethos which, frequently, only
governments can provide. We have not got over the message
that increasingly what governments do and how they do it, is much
more important than how much government involvement should there
be!
To some extent, too, the problem is one of re-forming opinions
and attitudes towards the role of governments. There is need
for a new vocabulary to promote the image of government as a public
good rather than as a necessary evil. We need a `perestroika'
of government. We need to recognize that, just as `Fordism'
is an out-dated method of organizing work, so the kind of government
interventionism appropriate to a `Fordism' is outdated. And,
just like the emerging managerial structure of twenty-first century
firms, we need governments to be lean, flexible and anticipatory
of change. The new paradigm of government should eschew such
negative or emotive sounding words such as `command', `intervention',
`regulation', and replace them by words such as `empower', `steer',
`cooperative', `coordination' and `systemic'. Moreover, not
only must governments recognize the need for a much more integrated
and holistic system of organizing their responsibilities, which
demands a `spider's web' rather than a `hub and spoke' relationship
between the various decision taking initiatives and the core of
government); but, for all those affected by governments, and particularly
the ordinary tax payers, to take a more positive view of the benefits
which only the former can produce.
4. THE CHANGING ROLE OF FIRMS AND GOVERNMENTS
Finally, what are the respective tasks of firms and governments
in acknowledge based economy and in an age of alliance capitalism,
as compared with those exercised in earlier eras? Here it
might be useful to refer to Figure 1, which illustrates the three
main organizational mechanisms for resource creation and allocation
in a market based economy, and depicts four situations in which
each of these mechanisms plays a rather different role.
Click here to down load Figure 1 in Adobe
Acrobat
In Situation 1, as, for example is the case of a purely communist
society neither private hierarchies nor markets play any part in
the creation and allocation of resources: each is assumed to incur
unacceptably high transaction costs, and/or to promote unacceptable
social goals. By contrast, in a purely market economy, private
buyers and sellers are the sole determinants of the level and composition
of goods and services produced and traded. Governments play
a minimal role, while firms engage in only a single value-added
activity, the inputs for which and outputs of which are bought and
sold in the open market. In this scenario, the transaction
costs of the market are assumed to be negligible, while those of
hierarchies and governments are both assumed to be positive (see
Situation 2).
In a hierarchical-market managed economy, economic activity is
organized partly by markets, and partly by multi-product firms which
govern the deployment of resources and capabilities which might
otherwise have been coordinated through the market12
(see Situation 3). This situation suggests that different
kinds of economic activity require different modes of governance,
and that the greater the market failure, the more likely its functions
will be performed by, and within, hierarchies.
In alliance based capitalism (see Situation 4), governments, along
with markets and hierarchies, may either directly engage in production
and transactions; or they might indirectly influence the structure
of resource creation and allocation, which, otherwise, would be
decided by the other two members of the triad. Such a tripartite
arrangement presupposes that governments perceive that, in the case
of some activities, at least, neither markets nor hierarchies, by
themselves, can achieve socially optimum results, and hence some
additional organizational modality is required.
Click here to down load Figure 2 in Adobe
Acrobat
It is, I think, generally acknowledged that changing economic,
political and technological forces over the past century and one-half
have resulted in a substantial realignment of the costs and benefits
of the three main modes in organization of cross-border economic
activity. Figure 2 illustrates the direction of these shifts.
For example, in the mid-nineteenth century, international transactions
were mainly organized by arm's length markets. There was some
government intervention, but large managerial hierarchies were in
their infancy. Over the following century, while the relative
significance of governments and markets in determining the level
and terms of international transactions fluctuated, that of hierarchies
continued to increase. However, no less noteworthy was the
changing extent and character of the interaction between the triad
of organizational entities; which, in the main, took on an adversarial
form.
What then of the situation of the knowledge economy late 1990s,
and the prospects for the next decade or so? Consider, first,
business corporations. As we have seen, all the evidence points
to the further pushing back of their territorial boundaries, and
to a larger number of them initiating regional or global production
and marketing strategies, particularly within the OECD countries.
In addition, the organizational forms of these strategies are likely
to becoming more pluralistic as firms pursue a more holistic approach
to their trans-border operations. The boundaries of firms
are becoming increasingly blurred as they forge new allegiances,
and as their networking with other firms becomes multi-focused.
While it is probable that internalized cross-border bonding will
increase, other less formal exchange relationships are likely to
proliferate as firms interpenetrate each other's territories.
More and more, the large international firm is becoming an orchestrator
or a set of geographically dispersed, but interdependent, knowledge-based
assets. Some of these, which represent its core competencies,
it will wish to own; but others (which may be no less important
to its commercial success) it will either jointly supply with other
firms, or purchase from its global network of suppliers.
Next, consider the role of governments. We are currently
in the midst of a wind of change towards the liberalization of markets,
and a reduction of government interventionism in the production
process. However, while accepting the dramatic changes now
occurring in the economic management of the erstwhile communist
countries, the role of government in affecting the organization
and competitiveness of economic activity in knowledge-based economies
has, in no way, diminished. Several of the most market-oriented
national administrations have consistently pursued strategies and
policies which have had a very fundamental impact upon the manner
in which intellectual capital is created and used. In a variety
of ways, and to achieve many diverse objectives, governments are
increasingly taking actions which taken as a whole, have repercussions
on the nature and behavior of firms far in excess of anything that
the kind of industrial policies practiced by Western nations in
the 1970s ever achieved.
The fact is that governments do themselves a disservice by belittling
their role as a promoter and sustainer of the efficient organization
of knowledge based resources. It is the consensus of many
studies that national governments have played a critical role in
influencing the success or failure of post-war industrial economies;
and that it is not the countries with the least government involvement
which have performed the best, but those which have worked most
closely and efficiently with hierarchies and markets to promote
the most efficient and cost-efficient allocation and upgrading of
resources under their jurisdiction. These are also the same
governments which acknowledge that, while they, as resource managers,
must lessen their intervention and reduce their own costs of governance,
markets and hierarchies do sometimes fail, and that a systemic and
integrated approach is needed if economic activity is to be optimally
organized.
Finally, what of the characteristics of markets? Despite
the current fashion towards the deregulation and liberalization
of markets, we suspect that the unaided efficiency of that particular
exchange mechanism for many goods and services in the knowledge
based economy of the later 1990s is likely to fall in the 1990s.
This is partly because we foresee a greater supra-market control
over the conditions of supply of a whole range of products, e.g.
to reduce information asymmetries, harmonize technical and safety
standards and advance environmental goals, and partly because the
interdependence between, and the risks associated with, the markets
for intermediate products seem likely to increase. We also
think it probable that there will be a recasting of international
supervisory or control mechanisms to take account of the specific
attributes of global production, and also to minimize the adverse
effects of `beggar my neighbor' strategic behavior, e.g. with respect
to investment incentives, on the part of national governments.
At the same time, future developments in information and communications
technologies may well reduce the costs of organizing corporate networks;
while a combination of the opportunities afforded by regional integration
and the fear of regional protectionism is prompting firms to become
insiders in both Western Europe and the US.
5. CONCLUSIONS
The age of alliance capitalism and the maturation of the knowledge
economy is, then, demanding a reconfiguration in the role of each
of the three main organizing mechanisms in a market oriented economy;
and, indeed, to the very structure of capitalism itself. Such
a reconfiguration is primarily the result, on the one hand, of a
shift in the origins of wealth in most industrial societies from
natural resources to created assets - and especially all forms of
knowledge -; and on the other, of the widening geographical spread
of all kinds of value adding activity.
In the late twentieth century market based economies, as in earlier
phases of capitalism, the privately owned and managed firm remains
the critical wealth creating agent. But, over the years, and
particularly in the last two decades, the criteria for its success,
the ingredients of its core competencies and its territorial boundaries
have all changed; as, indeed, have its relationships with other
firms.
Similarly, the emergence of an innovation led global economy, with
all its uncertainties and the difficulties of national macro-economic
management, has demanded that national governments should reconsider
their role, and how, in particular, their actions, for good or bad,
may affect the dynamic comparative advantage of its resources and
the competitive advantages of firms in world markets. Also,
because firm specific created assets are increasingly mobile across
national boundaries, national governments need to recognize and
take account of each other's macro-organizational policies if they
are to attract and retain mobile investments; and also to reappraise
the instruments and policies which may best achieve that objective.
In so doing, they may, and do, affect the functions and boundaries
of firms; and, this means that any discussion of the changing nature
of the firm, without considering the changing role of government,
will be inadequate.
Indeed, it is the interaction between the new paradigm of the firm
and that of government which, at the end of the day, will determine
the nature and scope of the firm in late twentieth century alliance
capitalism. Here we see a movement towards a more cooperative
and synergistic relationship between governments and firms; in which
each is acknowledged to have a unique, but complementary role in
a knowledge based economy; and in advancing the economic welfare
of its constituents. While, to a certain extent, the respective
roles of the state, firms and markets has always been recognized,
it is only as we approach the twenty-first century that a holistic
and integrative approach to the organization of wealth creating
activities is being seriously considered. Even so, in most
OECD countries, such an approach is still very much an early stage;
and this being so, the current changes in the nature of firms are
simply a foretaste of those yet to be experienced.
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* An abbreviated version of this paper was first presented
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ENDNOTES
1 Or what some commentators
(e.g. Edvinson 1997) have referred to as intellectual capital.
2 In 1995, on average, services
accounted for 63% of the world's gnp, compared with 53% in 1980
and 45% in 1965. For further details see, for example, World
Development Report (World Bank 1997) Tables 11 and 12.
3 The implications of
alliance capitalism, a term originally coined by Michael Gerlach
(1992), and also called `relational', `collective', collaborative
and `stakeholder' capitalism, are explored in a new book by the
current author, viz Dunning (1997a). In that book, we accept
that the current wave of strategic et al alliances could lead to
a reconfiguration, rather than a replacement, of hierarchical capitalism.
Here the eventual impact of the rash of mergers and acquisitions
on the organizational structure of US industry towards the end of
the last century should not be ignored (Chandler 1990).
4 Estimates of such
ventures vary considerably. A recent study by Booz Allen and
Hamilton has put the number of cross-border alliances (including
acquisitions and mergers) found in 1995 and 1996 as high as 15,000
(Booz Allen and Hamilton 1997). Another assessment by Hagedoorn
(1996) suggests that between 1980 and 1994, the number of newly
established cross-border technology alliances rose by over three
times. Finally, the value of international mergers and acquisitions
over the same period were estimated to have accounted for between
50% and 60% of all new foreign direct investment (UNCTAD 1997).
5 One estimate (Dunning 1996)
suggests that between 20% and 25% of R&D undertaken by the world's
largest industrial corporations is located outside their home countries;
while patent statistics confirm that an increasing proportion of
patents registered by firms in the US are in respect of innovations
arising from their foreign subsidiaries.
6 i.e. disinternalizing
activities both along a value chain (i.e. vertical disintegration)
and across value chains (i.e. horizontal disintegration).
7 See, for example, various articles
in a special issue of the Strategic Management Review, Vol. 17,
Winter (1996) and edited by J. C. Spender and R. M. Grant.
8 We say most because there
still remain some firms which engage in more traditional sectors,
but even here communication and related technologies are requiring
considerable restructuring of their activities.
9 According to UNCTAD (1995), between
1991 and 1994, of 373 changes in the foreign investment regimes
made by over 50 countries, 368 were in the direction of liberalization
or more aggressive promotional procedures.
10 Clearly, the extent of
such autonomy depends upon the economic and other characteristics
of the country in question, not only its size and resource structure;
compare, for example, that of the US with that of Singapore.
11 As set out at length in the literature,
e.g. in Chang and Rowthorn (1995), by Dunning (1994) and by several
contributions in Dunning (1997b).
12 Relative to the number
of goods and services produced in the world economy, the number
of separate and discrete economic activities required to produce
and market these goods and services has increased. In other
words, the transactional intensity of economic activity has risen.
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