Local, Action: Issues of Scale
In a recent debate hosted by Cato, Peter Leeson argues
In contrast to Leeson's note that it is not true that any government is better than no government, Rodrik arguees that more government is equivalent to good government. In fact, he is all but saying that state capitalism is the best option we have.
I welcome Rodrik's entry to the blogosphere. So far, he is proving very valuable as a source of material showing that defense of state capitalism is something to which both the Chamber of Commerce Right and Crolyist Left agree. [2] It's a fight between two sides of the same coin, the one side saying that we need government to rationalize the entire economy (by which I mean, "to coordinate everything in accordance with a central plan") while ignoring the side effects (increasing concentration of wealth and power), while simultaneously claiming that it is the other side that is doing this. The other side claims to defend free markets while actually defending the businesses and people benefiting from state policies.
And, in the present essay, Rodrik provides a generous amount of material to help me with the third installment of the Local, Action series. In the first two essays, I explored local commerce and associational activity. In this one, I am more interested in discussing localism as a preferred method for governance. I will gladly concede that dividing the world into loose confederations of local or regional sovereignties will result in a lower rate of growth, but I will simultaneously assert that the median person will not necessarily be worse off, that the least well off will be much better off, and that the society will likely be much more sustainable than the existing system which Rodrik prefers.
It is well-known that interpersonal communications scale poorly with the number of people involved. The most effective means of communication is direct conversation; we evolved to convey and to receive a great deal of information via non-verbal means (gestures, facial expression, voice timbre). People cannot handle the cognitive load of more than a few other people. Anthropologist RIM Dunbar posits
Dunbar calculated that humans could effectively socialize in groups of about 150 people. He also notes that modern military organizations are limited to no more than 200, a limit arrived at by trial and error over several centuries.
Once language and then writing was developed, we had the means to communicate to but not with a wider group. Writing can allow one person to reach more people, it is more precise and can possibly unload some of the emotional content, allowing a more rational conversation, but it isn't interactive. Personal relationships maintained by physical interaction are closer than impersonal relationships maintained by broadcast, a difference of kind, not degree. In Human Scale, Kirkpatrick Sale cites research from sociology and anthropology to argue for two types of naturally sized community: the neighborhood, roughly limited to 500 people, and the community of 5,000 to 10,000, roughly corresponding to the two types of communication. A Pattern Language makes similar arguments for the optimal size of regions, towns, neighborhoods in political, economic, and architectural terms.[3]
Not being able to communicate with many people effectively means that our ability to find out about their activities and intents is limited. We might forgive someone for making a mistake if we understood their motivations. We might also allow a mistake to pass if we knew that person was usually very conscientious. So contract breaches can be handled in a very cost-effective way when we have personal knowledge of the deliverer, but contracts become much more costly to enforce as our physical, mental, and emotional distance from the other party increases.
Thus, reputation and other features of self-enforcing contracts are difficult to scale up because it becomes difficult for people to directly observe compliance and to sanction the non-compliant. Rodrik does not seem to be aware, however, that the same problems stalk state enforcement of its own regulations. [4] Not only can the state not monitor everyone, but citizens can not effectively guard the guardians the further removed they are from them. It is difficult (costly) to hold politicians to their promises, to know the content of laws, and to know the quality and activities of the bureaucrats charged with enforcing the regulations. Laws may therefore work to the advantage of the wealthy and powerful, they may not be enforced effectively, or they may be enforced selectively, giving rise to corruption.
Locally, citizens can engage more freely and more securely in give-and-take. One day, the majority may agree to something that puts some at a disadvantage. We all know it and can confirm it personally. Later, we can agree to do something that compensates the victim(s). We have a better handle on who is getting the shaft and who is getting more than their fair share, and when the numbers are small, we are capable of keeping a running balance sheet on the externalities of our collective actions. [5]
In From Mutual Aid to the Welfare State, David Beito describes at length the activities of review committees sent to the homes of the covered. Their direct observation was not only an effective way of weeding out the fakers, but also provided stronger credibility for legitimate cases, so strong that when requesting special grants for hard cases, lodge members gladly forked over. After all, they weren't giving to charity, they were contributing to a mutual fund, one which they themselves might need to draw against one day.
Mancur Olson addresses the scaling issue in The Logic of Collective Action. He argues that small groups are able to use moral and social pressure to maintain group cohesion. The larger the group gets, the more costly it becomes to maintain cohesion. In large numbers, the group must offer some kind of tangible, excludable good in order to maintain he necessary cohesion. Because of the difficulty of herding large numbers to a common goal, small but focused groups may come to dominate the larger groups.
Scaling is the same argument that Tyler Cowen offers against the local food movement (sorry, no link). Sure, it may be possible for a few (usually wealthy or eccentric) individuals to obtain their food locally, and it should be of higher quality, but it becomes more difficult to attempt to feed entire cities from local farms. The Northeast corridor is unlikely to return to self-sufficiency in its current state, though this is interesting.
I would extend the arguments of the local food movement to the state: if you think that government is a good thing, local is better. Just as you can produce inexpensive food products by mass production techniques by giving up nutritional value, loading the environment with pollutants, and allowing national brands to push out local flavor, you can also mass produce your law by giving up legislative quality, loading the legal environment with barriers to entry and regulatory sclerosis, and allowing one-size-fits-all regulations to push out local custom. When your food is produced far away, you have little idea what ingredients or processes are being used. Just so, you have little idea how earmarks are getting into legislation or who stands to benefit from each 30,000 page bill. Transparency does not scale well, publicly or privately.
-----------------------------
[1] Let's also add Lisa Bernstein's study of the diamond industry and Jacob Loshin's delightful piece on how innovation and secrets are kept in the magic industry without Intellectual Property law.
[2] Need evidence of that fact? Check out this blurb for a book advertised on Max Sawicky's site:
[3] Were the 300 M inhabitants of the US divided into towns of that size (say, 6667), there would be 45,000 such towns. Using Sale's calculation of one square mile per town (admittedly, he only had 5,000 inhabitants) and a 15 square mile green belt around each town, this would require about 720,000 square miles, which he calculated to be less than one-fifth of the nation's total land and less than one-half of the area given over to cropland at that time.
[4] Actually, that's not entirely true. Rodrik himself characterizes federal policies as "targeted on a loosely-defined set of market imperfections that are rarely observed directly, implemented by bureaucrats who have little capacity to identify where the imperfections are or how large they may be, and overseen by politicians who are prone to corruption and rent-seeking by powerful groups and lobbies." So, he seems to recognize it, or perhaps he is just using arguments he has encountered but not really understood or accepted for rhetorical effect?
[5] One way of looking at this is to consider the costs to obtaining consensus and the cost of externalities arising from the decisions. A dictator has nearly zero (0) cost of reaching a decision, but the externality cost is likely to be very high. On the other hand, it would be extremely costly to obtain a 100% consensus of a large group, but there would be no externalities. Given methods of reaching a decision, like log-rolling, the externalities of the final decision may be expensive. The larger the group, the higher the cost of reaching a decision, and given Olson's observations about the ability of small, focused groups to dictate to large, dispersed groups, the cost of obtaining and the external costs grow as the group grows. This is an insanely abbreviated version of one line of analysis in The Calculus of Consent.
In a recent study I compared Somali welfare under anarchy to welfare under government using all key development indicators for which data allowed comparison. According to the data, of the eighteen development indicators, fourteen show unambiguous improvement under anarchy. Life expectancy is higher today than was in the last years of government's existence; infant mortality has improved twenty-four percent; maternal mortality has fallen over thirty percent; infants with low birth weight has fallen more than fifteen percentage points; access to health facilities has increased more than twenty-five percentage points; access to sanitation has risen eight percentage points; extreme poverty has plummeted nearly twenty percentage points; one year olds fully immunized for TB has grown nearly twenty percentage points, and for measles has increased ten; fatalities due to measles have dropped thirty percent; and the prevalence of TVs, radios, and telephones has jumped between three and twenty-five times.Dani Rodrik responded
...
Should we conclude from Somalia's stateless improvement that it is a nice place to live? Of course not. But Somalia's pre- and post-government performance highlights an important point about the desirability of anarchy. Contrary to conventional wisdom, it is simply not true that any government is always superior to no government. If state predation goes unchecked, government may not only fail to add to social welfare, but can actually reduce welfare below its level under statelessness. Such was the case with Somalia's government, which did more harm to its citizens than good.
Later in the essay, Rodrik concludes, "There is no example of a society that has become prosperous without a state machinery." He doesn't appear to be thinking about the fact that many societies that have not become prosperous in his sense (high GDP) have been sustainable over hundreds of years -- sustainable by definition.I do not have any trouble with the idea that self-enforcing agreements (what Leeson calls "anarchy") can sometimes substitute for third-party (i.e., government) enforcement. Such self-enforcing agreements are maintained through the force of repeated interaction ("if you cheat me now, I will cheat you in the future,") through reputational mechanisms ("see, I am not the cheating kind of guy"), and collective punishment schemes ("if you cheat me, I will bring the wrath of my colleagues on you"). The literature is replete with examination of such informal institutions. See for example Avner Greif's work on medieval merchant guilds, John McMillan and Chris Woodruff's work on commercial dispute settlement in Vietnam, Marcel Fafchamps' work on firms' relations with their suppliers in Africa, and Elinor Ostrom's work on the management of common property resources around the world [1]. Leeson's own account of how pirates have developed self-enforcing arrangements to elicit cooperation fits squarely in this larger literature.
The problem with self-enforcing agreements is that they do not scale up. One of the findings from Elinor Ostrom's extensive case studies is that self-enforcing arrangements to manage the "commons" work well only when the geographic scope of the activity is clearly delimited and membership is fixed. It is easy to understand why. Cooperation under "anarchy" is based on reciprocity, which in turn requires observability. I need to be able to observe whether you are behaving according to the rules, and if not, I have to be able to sanction you. When the size of the in-group becomes large and mobility allows opportunistic behavior to go unpunished, it becomes difficult to maintain cooperation. Imagine that the pirates numbered in the millions and they could easily jump ship to join competing groups mid-voyage; would the arrangements Leeson describes have been sustainable?
In contrast to Leeson's note that it is not true that any government is better than no government, Rodrik arguees that more government is equivalent to good government. In fact, he is all but saying that state capitalism is the best option we have.
Unlike in pirate societies or pre-colonial Angola, modern economies require an elaborate and ever-evolving division of labor -- among owners of firms, managers, and their employees, among producers up and down the value chain, and between producers and providers of supporting services such as finance, accounting, and legal services. The complexity, fluidity, and geographic non-specificity of these activities leave too much room for opportunistic behavior for self-enforcing arrangements to work well. They require an external backstop in the form of government-enforced rules.Alas, Rodrik seems committed to conflating the quality of governance to the size and scope of it, as he switches back from size to operation: "Prosperity is achieved when states are effective in setting and enforcing the rules of the game, not when they wither away."
...
Which is why the scatter plot below, showing the relationship between per-capita GDP and the size of the public sector, should not be a surprise. There is a strong, statistically highly significant, and positive association between countries' income levels and the share of their economy that the government consumes. This highlights the complementarity between markets and the state. Those societies in which markets work best are the ones where the reach of the state is longer -- not shorter.
I welcome Rodrik's entry to the blogosphere. So far, he is proving very valuable as a source of material showing that defense of state capitalism is something to which both the Chamber of Commerce Right and Crolyist Left agree. [2] It's a fight between two sides of the same coin, the one side saying that we need government to rationalize the entire economy (by which I mean, "to coordinate everything in accordance with a central plan") while ignoring the side effects (increasing concentration of wealth and power), while simultaneously claiming that it is the other side that is doing this. The other side claims to defend free markets while actually defending the businesses and people benefiting from state policies.
And, in the present essay, Rodrik provides a generous amount of material to help me with the third installment of the Local, Action series. In the first two essays, I explored local commerce and associational activity. In this one, I am more interested in discussing localism as a preferred method for governance. I will gladly concede that dividing the world into loose confederations of local or regional sovereignties will result in a lower rate of growth, but I will simultaneously assert that the median person will not necessarily be worse off, that the least well off will be much better off, and that the society will likely be much more sustainable than the existing system which Rodrik prefers.
It is well-known that interpersonal communications scale poorly with the number of people involved. The most effective means of communication is direct conversation; we evolved to convey and to receive a great deal of information via non-verbal means (gestures, facial expression, voice timbre). People cannot handle the cognitive load of more than a few other people. Anthropologist RIM Dunbar posits
there is a cognitive limit to the number of individuals with whom any one person can maintain stable relationships, that this limit is a direct function of relative neocortex size, and that this in turn limits group size. The predicted group size for humans is relatively large (compared to those for nonhuman primates), and is close to observed sizes of certain rather distinctive types of groups found in contemporary and historical human societies. These groups are invariably ones that depend on extensive personal knowledge based on face-to-face interaction for their stability and coherence through time. I argued that the need to increase group size at some point during the course of human evolution precipitated the evolution of language because a more efficient process was required for servicing these relationships than was possible with the conventional nonhuman primate bonding mechanism (namely, social grooming). These arguments appear to mesh well with the social intelligence hypothesis for the evolution of brain size and cognitive skills in primates.(hattip: Life With Alacrity blog, at which this is an interesting and related post)
Dunbar calculated that humans could effectively socialize in groups of about 150 people. He also notes that modern military organizations are limited to no more than 200, a limit arrived at by trial and error over several centuries.
Once language and then writing was developed, we had the means to communicate to but not with a wider group. Writing can allow one person to reach more people, it is more precise and can possibly unload some of the emotional content, allowing a more rational conversation, but it isn't interactive. Personal relationships maintained by physical interaction are closer than impersonal relationships maintained by broadcast, a difference of kind, not degree. In Human Scale, Kirkpatrick Sale cites research from sociology and anthropology to argue for two types of naturally sized community: the neighborhood, roughly limited to 500 people, and the community of 5,000 to 10,000, roughly corresponding to the two types of communication. A Pattern Language makes similar arguments for the optimal size of regions, towns, neighborhoods in political, economic, and architectural terms.[3]
Not being able to communicate with many people effectively means that our ability to find out about their activities and intents is limited. We might forgive someone for making a mistake if we understood their motivations. We might also allow a mistake to pass if we knew that person was usually very conscientious. So contract breaches can be handled in a very cost-effective way when we have personal knowledge of the deliverer, but contracts become much more costly to enforce as our physical, mental, and emotional distance from the other party increases.
Thus, reputation and other features of self-enforcing contracts are difficult to scale up because it becomes difficult for people to directly observe compliance and to sanction the non-compliant. Rodrik does not seem to be aware, however, that the same problems stalk state enforcement of its own regulations. [4] Not only can the state not monitor everyone, but citizens can not effectively guard the guardians the further removed they are from them. It is difficult (costly) to hold politicians to their promises, to know the content of laws, and to know the quality and activities of the bureaucrats charged with enforcing the regulations. Laws may therefore work to the advantage of the wealthy and powerful, they may not be enforced effectively, or they may be enforced selectively, giving rise to corruption.
Locally, citizens can engage more freely and more securely in give-and-take. One day, the majority may agree to something that puts some at a disadvantage. We all know it and can confirm it personally. Later, we can agree to do something that compensates the victim(s). We have a better handle on who is getting the shaft and who is getting more than their fair share, and when the numbers are small, we are capable of keeping a running balance sheet on the externalities of our collective actions. [5]
In From Mutual Aid to the Welfare State, David Beito describes at length the activities of review committees sent to the homes of the covered. Their direct observation was not only an effective way of weeding out the fakers, but also provided stronger credibility for legitimate cases, so strong that when requesting special grants for hard cases, lodge members gladly forked over. After all, they weren't giving to charity, they were contributing to a mutual fund, one which they themselves might need to draw against one day.
Mancur Olson addresses the scaling issue in The Logic of Collective Action. He argues that small groups are able to use moral and social pressure to maintain group cohesion. The larger the group gets, the more costly it becomes to maintain cohesion. In large numbers, the group must offer some kind of tangible, excludable good in order to maintain he necessary cohesion. Because of the difficulty of herding large numbers to a common goal, small but focused groups may come to dominate the larger groups.
Scaling is the same argument that Tyler Cowen offers against the local food movement (sorry, no link). Sure, it may be possible for a few (usually wealthy or eccentric) individuals to obtain their food locally, and it should be of higher quality, but it becomes more difficult to attempt to feed entire cities from local farms. The Northeast corridor is unlikely to return to self-sufficiency in its current state, though this is interesting.
I would extend the arguments of the local food movement to the state: if you think that government is a good thing, local is better. Just as you can produce inexpensive food products by mass production techniques by giving up nutritional value, loading the environment with pollutants, and allowing national brands to push out local flavor, you can also mass produce your law by giving up legislative quality, loading the legal environment with barriers to entry and regulatory sclerosis, and allowing one-size-fits-all regulations to push out local custom. When your food is produced far away, you have little idea what ingredients or processes are being used. Just so, you have little idea how earmarks are getting into legislation or who stands to benefit from each 30,000 page bill. Transparency does not scale well, publicly or privately.
-----------------------------
[1] Let's also add Lisa Bernstein's study of the diamond industry and Jacob Loshin's delightful piece on how innovation and secrets are kept in the magic industry without Intellectual Property law.
[2] Need evidence of that fact? Check out this blurb for a book advertised on Max Sawicky's site:
In his new book, economist Dean Baker debunks the myth that conservatives favor the market over government intervention. In fact, conservatives rely on a range of "nanny state" policies that ensure the rich get richer while leaving most Americans worse off.I found it on a post arguing in favor of one of Rodrik's Crolyist, pro-industrial policy posts. Irony was not intended. When I pointed it out, Sawicky nominated me for a Blogalympics Long Jump medal, apparently oblivious to the obvious.
[3] Were the 300 M inhabitants of the US divided into towns of that size (say, 6667), there would be 45,000 such towns. Using Sale's calculation of one square mile per town (admittedly, he only had 5,000 inhabitants) and a 15 square mile green belt around each town, this would require about 720,000 square miles, which he calculated to be less than one-fifth of the nation's total land and less than one-half of the area given over to cropland at that time.
[4] Actually, that's not entirely true. Rodrik himself characterizes federal policies as "targeted on a loosely-defined set of market imperfections that are rarely observed directly, implemented by bureaucrats who have little capacity to identify where the imperfections are or how large they may be, and overseen by politicians who are prone to corruption and rent-seeking by powerful groups and lobbies." So, he seems to recognize it, or perhaps he is just using arguments he has encountered but not really understood or accepted for rhetorical effect?
[5] One way of looking at this is to consider the costs to obtaining consensus and the cost of externalities arising from the decisions. A dictator has nearly zero (0) cost of reaching a decision, but the externality cost is likely to be very high. On the other hand, it would be extremely costly to obtain a 100% consensus of a large group, but there would be no externalities. Given methods of reaching a decision, like log-rolling, the externalities of the final decision may be expensive. The larger the group, the higher the cost of reaching a decision, and given Olson's observations about the ability of small, focused groups to dictate to large, dispersed groups, the cost of obtaining and the external costs grow as the group grows. This is an insanely abbreviated version of one line of analysis in The Calculus of Consent.
Labels: decentralization, organization, philosophy, politics
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