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Industrial policy under weak institutions: a minimax certificate for robust improvement and a spillover--capture threshold
Abstract
We give two results for the robust-improvement criterion $\inf_{M\in\mathcal M(P)}[W_M(\pi)-W_M(\pi_0)]>0$. (i) When the compatible model set is convex and welfare is affine in the model, a minimax theorem yields a dual certificate. Robust improvement by some (possibly randomised) feasible policy fails iff a single compatible model makes every feasible policy weakly worse than $\pi_0$. To refute targeting it suffices to exhibit one model, and to establish it one solves a finite LP in the discrete case. (ii) In a capture model with learning spillover $s$, capture rate $\kappa$ and marginal cost of funds $\lambda$, a small targeted subsidy improves welfare iff $s/C''(q_0)>(\lambda-1)q_0/(1-\kappa)$. It is robustly beneficial iff this holds at the worst compatible $(s,\kappa)$. We also show that recipient-level treatment effects identify $q'(0)$ but not $s$, which requires exposure variation among non-recipients. We give the corresponding moment.1. A dual certificate
Let $\Pi$ be a finite set of feasible policies (including $\pi_0$), let $\Delta(\Pi)$ be randomised policies, and let $\mathcal M$ be a convex compact set of compatible models. Assume $M\mapsto W_M(\pi)$ is affine, for example when $\mathcal M$ is the set of mixtures of finitely many structural models and welfare is an expectation.Theorem: $\max_{\mu\in\Delta(\Pi)}\min_{M\in\mathcal M}\sum_\pi\mu(\pi)[W_M(\pi)-W_M(\pi_0)]
=\min_{M\in\mathcal M}\max_{\pi\in\Pi}[W_M(\pi)-W_M(\pi_0)]$. Hence a robustly improving randomised policy exists iff every compatible model admits some policy strictly better than $\pi_0$. When $\mathcal M$ is a polytope with vertices $M_1,\dots,M_J$, the left side is the LP $\max\{t:\sum_\pi\mu(\pi)\Delta_j(\pi)\ge t\ \forall j,\ \mu\in\Delta(\Pi)\}$, with $\Delta_j(\pi)=W_{M_j}(\pi)-W_{M_j}(\pi_0)$.
Proof: The payoff is bilinear in $(\mu,M)$ on compact convex sets, so von Neumann's or Sion's minimax theorem applies. For a polytope, a linear function's minimum over $\mathcal M$ is attained at a vertex. ∎
Remark: Deterministic policies need not achieve the robust value. A lottery over sectors can be robustly beneficial when no single sector is, which is an argument for diversified targeting under model uncertainty. In weak institutions, randomisation must be implementable and protected against capture, which is itself a constraint on $\Pi$.
2. Spillovers, capture and costly funds
A sector has private marginal value $p$, convex cost $C(q)$ and private optimum $q_0$ with $C'(q_0)=p$. Output generates a learning spillover $s$ per unit to the rest of the economy. A per-unit subsidy $\tau$ is paid on claimed output. A fraction $\kappa$ of payments is captured, i.e. paid on fictitious output to connected recipients; the transfer counts in welfare at the recipients' weight $1$. Each dollar of public spending costs $\lambda\ge1$.Proposition: Welfare is $W(\tau)=s(q(\tau)-q_0)-[C(q)-C(q_0)-p(q-q_0)]-(\lambda-1)\tau q(\tau)/(1-\kappa)$, with $q'(\tau)=1/C''$. Then \[
W'(0)=\frac{s}{C''(q_0)}-\frac{(\lambda-1)q_0}{1-\kappa}.
\] A small subsidy is welfare-improving iff $W'(0)>0$. It is robustly improving over a compatible set iff $\min_{(s,\kappa,C'')}W'(0)>0$, attained at $(s_{\min},\kappa_{\max},C''_{\max})$ when these are independently bounded. The optimal subsidy, when interior, solves $s-\tau=(\lambda-1)[q/(1-\kappa)]C''+(\lambda-1)\tau/(1-\kappa)$.
Proof: Spending is $\tau q/(1-\kappa)$, because only $1-\kappa$ of payments support real output. The private surplus term has zero derivative at $q_0$. Captured payments are transfers whose resource cost is the excess burden $(\lambda-1)$ on the spending. Differentiate. ∎
So capture raises the effective cost of support by $1/(1-\kappa)$, and weak information (a larger feasible range of $s$) shifts the robust criterion to $s_{\min}$. Sunset rules matter only if enforceable: an unenforceable sunset leaves $\tau$ in place after $s$ decays, and the long-run welfare is then that of $\tau$ with $s=0$, which is negative.3. Identification
Proposition: Suppose recipient firms are randomly assigned subsidies at scale small enough to avoid general-equilibrium effects. Then the recipient treatment effect identifies $q'(0)=1/C''$ and the capture rate (comparing claimed with audited output), but not $s$. If, additionally, non-recipient firms' exposure $e_j$ to recipients (input--output or geographic) is randomised through the assignment design, then $\partial\mathrm{TFP}_j/\partial e_j$ identifies $s$ up to the declared exposure mapping. Recipient-only data are compatible with every $s\ge0$.
Proof: $s$ enters only non-recipient outcomes. With recipient-only data, any $s$ is consistent. Under randomised exposure, the exposure-response slope is a reduced-form coefficient that equals $s$ in the model. ∎
4. Remaining
Political replacement and lobbying make $\kappa$ endogenous to $\tau$, since larger programmes attract more capture, so $W'(0)$ is only local. Dynamic learning makes $s$ decline with cumulative output, as in an infant-industry structure. The optimal sunset then solves a stopping problem with commitment constraints. Constructing $\mathcal M(P)$ from real data, and checking convexity, is the substantive empirical task [rodrik,hrc,jlr].Completion Estimate
48%This is a post hoc, heuristic estimate for the full catalogue target. Finite feasible policy lotteries receive a minimax certificate, and a capture benchmark derives a local spillover-versus-financing threshold. Compatible-model construction, dynamic incentives, implementability and endogenous capture remain unresolved, so the full robust policy guarantee is still conditional.
References
- [rodrik] D. Rodrik, Industrial policy for the twenty-first century, HKS RWP04-047 (2004).
- [hrc] A. Harrison, A. Rodríguez-Clare, Trade, foreign investment, and industrial policy for developing countries, Handbook of Development Economics 5 (2010), ch. 63.
- [jlr] R. Juhász, N. Lane, D. Rodrik, The new economics of industrial policy, Annual Review of Economics 16 (2024), 213--242.