At
the centre of the process of integration advanced by liberalisation
and globalisation during the 1990s stands the multinational
corporation. And in terms of visibility and importance, US
multinationals like General Motors, IBM, Microsoft and Coca Cola,
occupy a pre-eminent position. This makes the release by the United
States government’s Bureau of Economic Affairs (BEA) of the
preliminary results of the 1999 benchmark survey of US direct
investment abroad an event of some significance. A US MNC in the BEA
data comprises a US parent company and its affiliates abroad. Much
of the BEA data relate to majority owned foreign affiliates (MOFAs),
which accounted for 84 per cent of employment of all non-bank
foreign affiliates. For some time now the BEA has been conducting
benchmark surveys or censuses of these MNCs once in five years, and
annual sample surveys for the intervening years. Comparable
benchmark surveys are available for the years 1982, 1989, 1994 and
1999, permitting a preliminary assessment of the changing role and
impact of multinational operations during the years of
globalisation.
The
BEA’s data do point to an acceleration of the expansion of US
multinationals (Charts 1 and 2). Over the 17-year period 1982-99,
the nominal gross product of and employment in US multinationals
grew at an annual rate of 5.1 and 1.2 per cent respectively. This
average trend conceals, however, a moderate acceleration in the rate
of growth of gross product and employment from 4.3 and 0.1 per cent
respectively during 1982 to 1989, to 5.7 and 1.9 per cent during
1989-99. Further, if we break down the 1989-99 period, the evidence
seems to point to a substantial increase in rates of growth of gross
product and employment from 4.7 and 0.3 per during 1989-94 to 6.6
and 3.5 per cent. These trends, Charts 1 and 2 indicate, separately
hold for parents of US multinationals and their majority owned
foreign affiliates (MOFAs) as well. It is no doubt true that trends
in nominal gross product figures may be vitiated by price movements.
However, the facts that inflation has been subdued the world over
during the 1990s and that employment figures follow gross product
movements, make these trends representative of actual events.
There are two sets of issues which the acceleration in the growth of
US MNCs raise. First, are issues related to the impact of that
acceleration on the structure of output and employment in the US
economy. The second, are issues relating to the impact of these
multinationals globally, and in particular on developing countries.
The more conservative apprehensions regarding globalisation are
based on the possibility that the growing importance of
multinational corporations could reflect a process of hollowing out
of economic activity in the developing countries and their
relocation abroad, resulting in job and production losses in the
metropolitan centres of global capitalism. Those who argue that
liberalisation and globalisation are positive from the point of view
of the developing countries also advance a less asymmetric version
of this argument. In that view, globalisation, besides increasing
the incomes of developed country corporations with attendant
positive consequences in those countries, allows for an expansion of
production, employment and exports in developing countries, driven
by multinational corporations.
In these views, the
defining feature of foreign direct investment (FDI) during the years
of globalisation is that each enterprise-level investment decision
is a component of a larger process of relocation of whole industries
from sites in more industrially developed economies to less
developed ones, resulting in the global restructuring of industrial
production. Relocation takes its "ideal" form, which involves the
once-for-all or gradual closure by more developed country producers
of capacity at home and the establishment by the same producers of
equal or larger capacities in developing country sites. This trend
towards relocation, if it occurs, reflects a change in the nature of
global flows of FDI during the years of liberalization and
globalisation.
With the wave of liberalisation that began in the early 1980s, it is
argued, the relevance of foreign investment stimulated by
import-substituting policies in the developing world has declined.
The removal of non-tariff barriers to trade and the reduction of
tariffs on most imports, have done away with the need to jump
barriers to control markets. Most developing country markets can be
accessed as easily through imports from abroad of commodities either
in their final form or ready for assembly. The corollary is that
foreign investments aimed at catering to domestic markets must be
competitive with imports accessible at relatively low tariff rates.
That is, the segmentation of the world market that the
import-substituting years implied and the consequent distinction
between sites for local market-oriented production and world
market-oriented production is disappearing. Investments aimed at
catering to domestic markets should be capable, therefore, of
catering to the world market. The resulting dissociation between
sites of production and markets implies that a firm would now choose
to invest in a particular location only if that site can serve as
one of the production locations for its world market operations.
Thus, when an enterprise chooses a new location for
investment it is in essence "relocating" capacity that can service
the local market, or its erstwhile "home"-country market, or its
third country markets or some combination of those markets.
This trend is seen as having been facilitated by changes in
technology. To start with, the revolution in transport and
communications has reduced costs and increased the ease of
communication so substantially that: (i) managerial control of
internationally dispersed capacity has become easier; and (ii) the
share of transport costs (for inputs purchased and outputs sold) in
total costs has fallen dramatically in the case of many commodities.
Secondly, changes in technology have in many industries segmented
production processes, so that individual components of the process can
be undertaken independent of each other at diverse sites. This permits
firms to relocate particular (say, labour-intensive) segments of even
technology-intensive production processes to alternative sites
depending on their characteristics. Add to all this the fact that over
the last two decades or more there has been a rapid dismantling of
protective regimes and relaxation of regulations on foreign investors
across the globe, and the basis for a significant change in the
character of foreign investment should be clear. After allowing for
national peculiarities and variations in political structures, any
production site world-wide is becoming a potential site for production
for world markets. The individual firm is detached from dependence on
home country resources and has the opportunity to locate itself in
environments where it can overcome the disadvantages stemming from
specific macroeconomic developments such as appreciating exchange
rates or microeconomic features like high wage levels, and
substantially enhance its international competitiveness.
The BEA evidence, however, does not tally with this view that the
expansion of multinationals would be accompanied by a tendency where
growth in the periphery would be at the expense of presence in the
metropolis. As already mentioned, the acceleration in expansion of MNC
operations has been as true of the parent firms as of their MOFAs.
This is true of both gross product and of employment. Further, there
has been only one short span of time, 1989-94 when employment growth
in US MNC parents was marginally negative. And these were years when
growth in the US and worldwide had slowed, suggesting that employment
movements during those years were influenced more by macroeconomic
trends than by firm-level strategies.
Overall, the presence of parents in the global operations of MNCs
still remains strong. As Chart 3 shows, the share of MNC parents in
the worldwide gross product of US MNCs has remained more or less
constant during the years 1989-99. This is true in the case of all
industries in which MNCs participated, and of manufacturing, finance,
insurance and real estate (excluding depository institutions). It is
only in services that there has been a significant decline in parent
share of gross product during the latter half of the 1990s. This
persisting presence of parents in the economic activity of US MNCs,
has also meant that the contribution of US parent firms to US GDP has
also remained relatively constant during the period 1989-99 (Chart 4).
Whether relocation occurred or not, the parents of US multinationals
were making a significant and persisting contribution to overall US
economic activity.
However, there are two confusing aspects to these trends. Another way
of assessing the impact of MNC operations is to examine the
contribution of MNC parents and affiliates to parent and host country
GDP. Chart 4, which examines the contribution of US parents to US
gross product over a longer period of time suggests that there was a
sharp reduction (6 percentage points in ‘all industries’ and 8
percentage points in the case of manufacturing) in the contribution of
US parents to US MNCs GDP between 1982 and 1989, followed by stability
in that contribution thereafter. Thus, if at all the relocation
argument is supported by the gross product figures, it appears to be
during the early years of globalisation.
It could of course be argued that this exercise, which requires
comparison of figures from the BEA’s benchmark surveys of US direct
foreign investment abroad and its National Income and Product
Accounts, could be fraught with problems. However, the BEA itself has
in the past attempted to adjust aggregate gross product figures to
make them more comparable with the FDI figures. For improved
comparability with U.S.-parent gross product, GDP of all private U.S.
businesses was adjusted to remove from the total categories not
applicable to non-bank U.S. parents— specifically, GDP of depository
institutions; imputed rental income of owner-occupied farm and
non-farm housing; and rental income of persons. The results yielded by
this comparison of adjusted figures provided in Chart 5 tallies with
the view supported by Chart 4 that any loss of production due to
relocation occurred, if at all, during the early years of
globalisation and not during its peak years in the 1990s.
But the litmus test of relocation lies not in output but in employment
trends, which provide a second cause for confusion. As Chart 6 show, the
share of US parents in MNC employment worldwide remained more or less
constant during 1982-89, but fell quite significantly (5 percentage
points in ‘all industries’ and manufacturing) during 1989-99. This could
be interpreted to mean; (1) that relocation by MNCs resulted not so much
in a major loss of employment in the US, as in a faster growth of MNC
employment in the periphery than in the core; and (2) that this process
of relocation did not result in any loss in share of parents of US
multinationals in gross product generated worldwide or in the
contribution of these parents to US GDP.
According to the BEAs own interpretation of trends based on its 1994
benchmark suvey, the persistence, despite relocation of production, of a
high share in manufacturing GDP of US parents partly reflects “the
firm-specific intangible assets (such as patents or brand images) that
allow these firms to earn profits that are sufficient to overcome the
additional costs of producing in foreign markets.” This refers, of
course, only to that part of surplus that is repatriated in some form to
the parent country, and not to that which is used either to expand
international assets or to increase the retained surpluses of the
affiliates themselves. Clearly, relocation does not imply lower profits
for US companies, whatever else it may mean for the US economy. Rather,
as has been argued by many, international expansion has been a way of
maintaining or enhancing the surpluses garnered by US parents from the
world market. The value of that surplus also increases in real terms
because of the fall in primary commodity prices associated with
globalization.
An examination of the industrial distribution of US multinationals in
1999 (Table 1) helps clarify matters further. There are just two major
industry groups which account for more than 10 per cent of MNC gross
product worldwide: manufacturing and information. Within manufacturing,
Transportation equipment, Chemicals and Computers and electronic
products are the main sectors of MNC presence. An interesting feature of
MNC presence in manufacturing is that while parent manufacturing firms
account for 50 per cent of aggregate gross product of MNC parents, MOFAs
in manufacturing account for 72 per cent of aggregate gross product of
US majority-owned affiliates. This larger share of MOFAs when compared
with parents in manufacturing as opposed to all industries does suggest
that MNC manufacturing presence relative to overall presence is greater
abroad than at home.
Information is a new category in the 1999 survey, which did not exist in
earlier surveys. Its large share in aggregate gross product is true only
of parent firms (13.3 per cent), while the share of MOFAs in this area
in aggregate gross product is still small (3.6 per cent). The sub-sector
is dominated by one industry, broadcasting and telecommunications. This
is an area where “intangible assets”, and the control they provide, may
play a major role in explaining the high share of parent MNCs in gross
product. That possibility is corroborated by the relative importance of
MNCs in the US industry in this sector when assessed in terms of
employment (Table 2). While US parents of MNCs account for less than 20
per cent of all non-bank private employment, and parents of
manufacturing MNCs for 45 per cent of US manufacturing employment, the
figure stands at 53 per cent in the case of the information industry.
This has an important implication. Even as the share of manufacturing
employment generated by US MNCs abroad is showing signs of growing
faster than employment at home, new sectors of MNC activity in the
services areas, particularly information, are helping strengthen
employment in the US. This not only tallies with the growing role of
services in US employment and GDP, but also explains in part the growing
emphasis on liberalization of services trade on the part of US trade
negotiators at the WTO.
MNC trade does account for a substantial share of US trade. MNC
associated US exports accounted for 63 per cent of total US exports in
1999, having fallen from 77 per cent in 1982 (Table 4). A substantial
chunk of those exports were to MNC affiliates abroad. Thus intra-firm
trade accounted for 25 per cent of all exports. If the surveyed MNCs
account for all of these intra-firm exports, then it follows that close
to 40 per cent of MNC exports from the US is intra-firm. Intangibles
embodied in these goods and those sold to other persons account for a
substantial share of parent gross product. What is surprising, is that
MNCs have a much smaller role in US imports than in US exports. The
share of MNC associated US imports has fallen from 50 per cent in 1982
to 37 per cent in 1999, and only 17 per cent of US imports are
intra-firm. Thus the view that American firms are increasingly
relocating abroad to cater to US markets appears to be far from the
truth. US imports come from other sources. US multinational parents and
MOFAs are still predominantly targeting local markets, and if at all US
MNCs are targeting foreign markets based on US production rather than US
markets based on global production.
This, however, does not mean that MNC presence is not an important
factor affecting developing countries. This is the view often gleaned
from the fact that even now a large share of global FDI flows are to the
developed countries. But developing countries are the ones in which US
MNCs account for a significant share of host GDP (Table 3). In fact, 11
out of the top 20 countries ranked according to MNC share in host GDP
are developing countries, including Singapore, Malaysia, Hong Kong,
Indonesia, Chile, Mexico and Philippines, which are known to have
followed strategies aimed at attracting FDI. There are many more
developing countries in the list of the top 40 in terms of MNC
contribution to host GDP. Even this evidence should be treated with
caution, since it does not include joint ventures in which US MNCs have
a minority share.
What needs to be noted is that the expansion of US capital abroad has
increasingly taken the form of acquisitions of existing firms as opposed
to investment in green-field projects. Such acquisitions, which are
followed by the modernization or even replacement of the acquired firms’
assets, allows for US firms to capture market shares in which
pre-existing brands are replaced by those of the acquiring firm. In
1999, for example, 577 of 1077 newly established affiliates of US MNCs
were acquired rather than newly established. The consequent
standardization of brands sold worldwide has been widely noted.
Underlying such standardization is the growing command of US firms of
the gross product of host countries. Combined with the emergence of new
industries like the information sector where US MNCs dominate, this
could mean that the next benchmark survey could reflect a qualitative
shift in MNC presence in the developing world. But, the evidence as of
now indicates that that presence would not be so much a sign of
relocation of US economic activity to low cost sites abroad, but the
growing dominance of these MNCs over world markets through exports and
local production.
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