The Importance of Small Manufacturing Firms:
A Policy Review
Prepared for:
A Policy Conference
June 20-21,
Sponsored by:
The Center for Economic
Options, Inc.
Center for Business and Economic
Research
Introduction
The
manufacturing sector enjoys a prominent place in economic policy discussions;
so too does small business. This concern
for both the manufacturing industry and small businesses manifests itself in a
growing number of public policy and research efforts that focus on small
manufacturing firms. The “Made Right
Here” Conference is an important example.
The attention paid to small manufacturing firms should be welcomed,
especially in
One hopeful outcome of this attention is that reevaluation of existing public policy and the crafting of new initiatives that improve the performance of small manufacturing firms may emerge. Happily, our understanding of the role of small enterprises is largely rooted in solid theory and empirical evaluation. The result is that most policy initiatives surrounding small business are guided by thoughtful analysis. To be sure, there are disagreements, but these are largely about questions where serious researchers have not yet provided answers. This is a happy outcome of informed public policy making.
However, the main problem that befalls the debate about the manufacturing industry, at virtually all levels of discussion, is that refutable myths, which are deceivingly easy to formulate and disseminate, intrude on the formation of effective policy. Indeed, there is likely no greater held error in public policy than that which surrounds the reason the manufacturing industry is important to regional economies. The chief problem with the myths surrounding the manufacturing sector is not just that they are wrong, but that they severely underestimate the importance of the sector. This results in trivial and often ineffectual policy interventions.
To be clear, the manufacturing industry is important to regional economies. However, as public officials craft policy to aid the manufacturing sector, an error in identifying the features of the sector that are important may lead to ineffectual or even counterproductive policy.
In this paper I will endeavor to dispel the most
egregious of these myths and attempt to replace them with an explanation of why
manufacturing is an important segment of the economy. This is followed by an explanation of what we
do, and do not know about small manufacturing firms (and here we emphasize
Some Myths of Manufacturing
Firms
that produce goods are ubiquitous in modern economies.
The Economic Base Story
A
common description of a regional economy is the economic base story. In this description, a regional economy is
composed of firms that produce goods and services that are traded both within
and outside the area. Firms that export
goods or services to another area (be it
One easy conclusion to be derived from the economic base story is that for a region to prosper it must engage in trade. This is likely true. A second conclusion is that for a region to prosper it must attract more of the trade flow than other regions (or have a net positive balance of trade).[2] This is wrong. It may also lead to bad policy. A third conclusion is that for a region to prosper it must compete effectively with other regions. This too is wrong, and may lead to especially egregious policies. Let me explain.
At
its most direct level, all trade is a zero-sum game. Any dollar I spend in
Even
more succinctly, if it is simply trade flows that matter, then the
On
a final note (for if you are not convinced by these data then you should stop
reading) regions that have a high proportion of their economy in the ‘economic
base’ should prosper over those with less. This is not true, and for just one
piece of evidence no state with a smaller proportion of its economy in
manufacturing has suffered slower growth or lower incomes than
Trade
does matter but not because of flows but because of some other impact of the
trade. It is especially important to
realize that the vast majority of most trade flows that involve
Why Trade Does Matter
The
import and export of goods is critical to a dynamic economy. We need look no further than recent history
to confirm this. In 1950 both
Over the next
forty years
By 1990,
Finally, the
world’s largest and most prosperous, most technologically advanced, most
dynamic economy is the oldest free trade zone.
The Interstate Commerce Clause of the 4th Amendment of the
Constitution of the
So, having established that trade matters, it is important to understand why. Trade, an activity which is carried out by consumers and firms (not as rhetoric would have it, nations) increases the productivity of workers and firms within a region. It is the increase in productivity (the value of goods produced by each worker is a common measure) that generates the real benefits of trade.
As
David Ricardo pointed out in his Principles
in 1815, the production of most goods and services (he supplied an agricultural
example) can occur anywhere. But, it is
typically less costly to produce a given good in one region or another. This may be due to climate as in Ricardo’s
example, or because of natural resources (tea in India, coal in West Virginia)
or through proximity to low cost transportation (as in Huntington or Baltimore)
or because of scale and scope economies that result from clustering (Silicon
Valley, Dalton, Georgia or Hickory, North Carolina). Relatively high productivity in the
production of one good or service leads to comparative advantage. It is the flow of production to places that
enjoy comparative advantage and the productivity gains associated with them
that leads to economic growth worldwide and here in
Policymakers
also are concerned with the diversification of an economy. This is important, but not to growth. There is no correlation between economic
growth and the diversity of an economy.
Indeed,
Importantly,
regions do not compete, firms do. A
region that enjoys no absolute advantage in any good can still enjoy
comparative advantage in one good. As
long as productivity increases so too will prosperity. If individuals and firms enjoy high levels of
productivity then that translates into high regional productivity. Regions
that enjoy high levels of per capita income also have high worker productivity. It is this productivity that leads to higher
wages, and higher regional incomes (and oftentimes higher regional productivity
if good policies are pursued). In
Manufacturing,
There was a
chart here
Though
it may not be apparent in this graph, with each decline in manufacturing
productivity, labor intensive industries have experienced a relative decline in
productivity. However, with each
increase in manufacturing productivity, there has been no associated relative
increase in the labor intensive industries.
This downward ‘ratchet effect’ is what permits manufacturing to serve as
a predictor of productivity changes in other sectors.[6] Importantly, this figure illustrates
productivity changes in
A
common misunderstanding of costs and productivity leads to unwarranted fears of
a downward spiral of job losses that accompany outsourcing or trade. It is the productivity of a worker determines
their wage. For example, a master
bricklayer can lay 250 bricks in a day.
If he earns $200 per day he is a high wage worker in comparison to a
beginning bricklayer who earns perhaps half that wage or $100 a day. However, the master bricklayer is the low cost worker if the beginner can lay
only 125 bricks a day.
It is the value of goods produced per unit of cost that matters, not the wage
of the bricklayer. If it were wages that
mattered
There was a chart here
If the reader remains unconvinced then a quick review of similar analysis by either Paul Krugman or Milton Friedman, two superb economists who share political views at the extreme opposite ends of the spectrum may prove helpful. Pick either for they are both right in this matter. The benefits of trade are too simply arithmetic to fall to political dogma – if you can do the math.
Why Manufacturing Is Important
So, having refuted the main argument in support of manufacturing – that it is an all important economic base, why is manufacturing important? To most economics, the manufacturing sector serves as an indicator of relative changes in regional productivity. The production of goods, to a far larger extent than services, is not bound to population. The production of goods, unless regionally constrained by raw materials and transportation may occur anywhere. This makes manufacturing firms much more susceptible to relative changes in productivity than firms that provide services. The loss of the manufacturing industry (though not necessarily workers) should provide evidence that a change in relative productivity has occurred. If regions suffer from some deficit in the production process that leads to a loss of comparative advantage then the result will be loss of production of these goods or services. So, manufacturing is not important because its loss will lead to lower trade flows, it is important because a decline in manufacturing may signal an overall regional decline in productivity. This is very important since manufacturing typically comprises a very small proportion of any region’s economy, and the general decline in productivity may be shared across all industries.
The argument that manufacturing serves as the ‘canary in a coalmine’ suggests that it is much more important than the simple economic base story suggests. However, this abstract concern does not deny that changes in industrial composition or trade flows do not generate economic distress. The common concern over loss of manufacturing jobs is real. It warrants special treatment.
The Worry About Jobs
Agricultural
jobs, as a share of employment, peaked in pre-historic times, though as late at
1900 a third of
One important paper decomposes efficiency changes from technological changes from the mid 1970’s through 1989. This paper also identified labor and capital bias in new technology. The authors found that during the heavy manufacturing job loss period, it was capital biased technology playing a relatively large role in productivity growth. This resulted in faster employment reductions.[7] Another important paper found that during the same period firms that enjoyed both productivity and employment growth contributed more to overall manufacturing productivity growth than did firms that enjoyed productivity growth but employment declines. Firms that grew employment without increasing productivity dampened the overall effect. The lesson I would like to impart is that explanation of productivity growth, downsizing and outsourcing is not a simple one.[8]
There was a chart here
Manufacturing jobs have always been viewed as good jobs – steady, high paying and with benefits. This is true, but the reason manufacturing jobs have been high paying and steady is because of the relatively high productivity of workers in these jobs. Simply, manufacturing employees are not highly paid because of their industrial sector, but because of the value they provide to the production process. [9]
Over the past century, manufacturing wages have been high due to the high productivity of these jobs. The high contribution of physical capital (plant and equipment) to the production process makes manufacturing a capital-intensive industry. Within capital-intensive industries workers can then produce a higher value of goods than is typically the case in labor-intensive industries. This is the leading source of high wages in the manufacturing industry.
In
recent decades, the share of manufacturing employment in the
First, the jobs the newer workers and displaced manufacturing employees have found within other sectors often experiences lower capital to labor ratios than the manufacturing sector. Thus, the human capital contribution to overall labor productivity becomes a more critical determinant of wages. Simply, the shift away from traditional manufacturing will result in individual worker skills playing an increasingly important role in influencing wages.[10] If this trend continues then the acquisition of human capital will increasingly influence wages for new workers.
Second, as manufacturing jobs make up a decreasing share of employment, manufacturing firms will increasingly demand higher skilled workers. Increasingly complex production processes will magnify this trend. One result is that human capital requirements among manufacturing workers is likely to rise. This means that manufacturing jobs may well pay better in the future, but also demand better trained workers in the coming years.[11] Certainly the formal education requirements for manufacturing workers have increased dramatically from even a generation or two ago. An unwelcomed side effect of this trend is that it may result in a loss of one of the features of manufacturing that has made it a popular industry – its high wages for workers relative to their formal education.
To reiterate,
manufacturing is an important sector of our economy. However, the worries about the loss of
manufacturing and our economic base are unwarranted. Manufacturing matters for two reasons. First, it is a highly productive sector of
our economy and thus generates high wages for workers. Second, changes in the relative productivity
of the manufacturing sector may signal changes across other sectors within a
region. Firm size is also of importance,
with small firms playing an important role in a regions economy, especially in
The Importance of Small Firms
Most of the policy concerns of big businesses are also important to small firms. However, those policy matters that are critical to small firms may be unimportant to larger enterprises. This fact alone may signal a need for policy initiatives directed towards small business. That is why efforts such as this conference are so critical to forwarding effective policies to stimulate small business.
Small
businesses dominate the economic landscape of the
There was a
chart here
There are many reasons small businesses matter to a regions economy. This review will focus on the economic importance of small businesses, but we would be remiss if we did not acknowledge other important considerations that are not typically evaluated by economists.
Small businesses are likely tied more closely to the communities in which they are located. This may result in stronger involvement in local activities from Little League sponsorship to Rotary participation. Since small businesses tend to be more locally focuses likely results in stronger community involvement. This is an empirical question, but one I will defer to other disciplines.
The economic importance of small firms is well documented. Even a rough analysis of the importance of small firms it outside the scope of this paper. However, I believe three contributions of small businesses warrant special discussion.
First, small
businesses comprise a considerably larger part of the economy than even their
strongest advocates typically suppose.
In
There was a
chart here.
Second, small firms are key contributors to the technological and managerial experimentation that fosters productivity growth. Small firms play a role in changing market structure and in providing an opportunity for entrepreneurs. Recent data assembled by the Census and Bureau of Labor Statistics has provided considerable insight into job creation and entrepreneurship. In a 1999 analysis of this data, the authors found that small firms (fewer than 20 employees) showed the highest employment growth rates. This translated into small businesses enjoying the highest rates of job creation among all sizes of firms.[12] I am aware of no empirical evidence to contradict these findings.
Third, small
businesses act as an important entry into labor markets. The robust expansion and employment dynamics
of small business are often cited as key evidence of the forces that force
changes in economic structure toward competition. One widely touted example of this is the high
proportion of small firms in the
Overall, small manufacturing firms represent 13.4 of total employment in the State and 6.4 percent of firms. These firms produce everything from marbles to aircraft. Note, that in the case of manufacturers, small firms dominate the economic landscape. It is not just labor intensive firms that are small, but also manufacturing firms.
There was a
chart here
From
these estimates of the size of the small manufacturing sector in
While all firms are concerned with a wide range of policy issues, small businesses are especially sensitive to a number of issues that need policy consideration. We outline these below.
First, the regional condition of human capital (primarily educational attainment and job skills) is critical to the success of small firms. Small firms are especially sensitive to weaknesses in human capital since a single employee represents a relatively high proportion of the workforce, and economies of scale often preclude formal firm level training. In the short term, investments in workforce training and a high quality community and technical college system are critical to small firms. In the long run, the quality of K-12 education and higher education will largely determine the success of small businesses within a region.
Second,
small businesses are particularly sensitive to financial constraints. A recently published study of the impact of
small loans found that the per capita rate of small business loans (under
$100,000) in
Third, small businesses are very sensitive to barriers to entry in both input and output markets. The chief barrier to entry in markets for inputs is in labor market participation. Policies that limit job participation make the operation of a small business more difficult. However, since many policies that limit job participation have other positive goals (e.g. Workers’ Compensation and unemployment benefits, visa requirements, etc.) balance in these areas will be a continuing policy concern.
Barriers
to entry in output markets may include high transactions costs and
anticompetitive conditions. Transactions
costs may be administrative or regulatory and thus as with labor market
regulations may have features that meet desirable public policy goals. Thus balance is important. One common approach to balancing the
desirable features of regulation with the ill effects these regulations may
visit upon small businesses is a size exemption. Any policy review designed to aid small
businesses should begin with size exemptions.
A good example of these efforts has recently occurred in
One
interesting analog to the size exemption is a pervasive ill-treatment of small
businesses by state development officials across the nation. As an example, the State of
Also,
anti-competitive behavior serves a barrier to entry to all firms. There is much misunderstanding surrounding
firm size and anti-competitive behavior.
While it is commonly believed that large retail stores and manufacturing
firms engage in anti-competitive behavior as a rule, there is scant evidence to
support this. Indeed, there is much to
refute this notion.[14] It is more likely that regional
anti-competitive behavior by incumbent firms (of all sizes) may prove a
problem. In these cases, two important
policy options may be considered. First,
states must send a clear and unambiguous message regarding anti-trust
enforcement. Second, special advocacy
and analysis should be conducted by state attorneys general to identify and
prosecute anti-competitive behavior at eh smallest level. Perhaps one of the best examples of this is
Most importantly small businesses need a healthy and effective government, with clear and non-distortionary taxes and an effectively delivered suite of public services. This should result in a region with a healthy, well education population, with safe and well maintained roads and infrastructure. The presence of these factors will make it more likely that the dynamic and invaluable role of small manufacturers will aid in insuring prosperity and economic growth.
Dr. Michael J. Hicks is the
Director of Research, Center for Business and Economic Research at
He is married to the former
Janet Hicks, with whom he has a daughter, Morgan age 5, and two sons, Nathan, 3
and John, an infant. He is an army
reserve infantryman currently assigned to the U.S. Army Japan. He is veteran of peacekeeping missions in the
Middle East and
[1] Notably small manufacturing firms are more likely to have their goods consumed locally, making them less likely to comprise part of the economic base. If you believe the economic base story of economic growth, then you should care little about small firms of any size.
[2] Ross
Perot famously argued that the
[3] If it is the pure commodity flow impact of trade that improves a region’s economy, then the world, as a whole, cannot grow. Who indeed, is the world trading with? Mars, Venus?
[4] For an interesting analysis of the institutions of this process, especially the role of overseas development representatives, see C. Keith Head, John C. Ries and Deborah L. Swenson, Attracting foreign manufacturing: Investment promotion and agglomeration, Regional Science and Urban Economics, 29 (1999) 195-218.
[5] This is
the source of the factual comments by Sen. Rockefeller regarding the competitiveness of
[6] To test this hypothesis I performed a statistical test that evaluated whether or not a decline in manufacturing spawned a decline in services and vice-versa. In this test I was unable to reject the hypothesis that declines in manufacturing generated declines in services, but was able to reject the hypothesis that increases in manufacturing productivity saw concomitant increases in services productivity. I was also able to rule out equilibrium relationships between the two, but only very tentatively due to small sample sizes. The tests were autoregressive conditional heteroscedasticity tests and cointegration.
[7] See William L. Weber and Bruce R. Domazlicky, Total factor productivity growth in manufacturing: a regional approach using linear programming, Regional Science and Urban Economics, 29, (1999) 105-122.
[8] See Martin. Neil Baily, Eric J. Bartelsman and John Haltiwanger, Downsizing and Productivity Growth: Myth or Reality, Small Business Economics, 8, 259-278, 1996.
[9] Importantly, labor intensive industries, with high human capital requirements often pay much better than manufacturing. However, occupations in these industries typically require considerable educational and training investments that are time consuming and ill-suited to generating regional benefits since the workers are very mobile.
[10] This trend reduces the benefits an individual worker will experience from collective bargaining and may be largely responsible for the fifty percent decline in private sector union participation over the past two decades.
[11] The
Center for Business and Economic Research has performed extensive surveys in
the majority of
[12] See
“Small Business and Job Creation in the
[13] See Hicks, Michael J “Do Rural Areas in the
[14] See
Hicks, Michael J. and Kristy Wilburn “The Locational Impact of Wal-Mart
Entrance: A Panel Study of the Retail Trade Sector in