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Final: August 26, 2008 Trade Competition and Domestic Pollution: A Panel Study, 1980-2003 Xun Cao Lecturer Department of Government Universiy of Essex Wivenhoe Park Colchester, Essex CO4 3SQ, UK +44 1206 872506 [email protected] & Aseem Prakash Professor Department of Political Science University of Washington Gowen Hall 39, Box 353530 Seattle, WA 98195 206-543-2399 206-685-2146 (fax) [email protected] 1 Abstract This paper examines whether trade competition abets regulatory races in the environmental area. To measure trade competition and the consequent strategic interdependence among trading countries, we develop a new measure, structural equivalence, which assesses competitive threats that a country faces from others whose firms export the same products to the same importing destinations. Employing this new measure, we analyze a panel of 140 countries for the period of 1980-2003. The empirical findings indicate that trade competition drives air pollution (Sulfur dioxide) and water pollution (Biochemical Oxygen demand) levels among structurally equivalent countries. We then test separately whether trade competition abets upward and downward environmental races. We find that trade competition among structurally equivalent countries abets downward races in the case of air pollution. Our analyses do not lend support to the race to the top hypothesis for either air or water pollution. This suggests that countries respond asymmetrically to pressures when their structurally equivalent competitors ratchet down their regulations as opposed to ratcheting up their regulations. 2 Introduction Under what conditions might global trade abet environmental races to the bottom? The key assumption behind most environmental regulations is that profit-seeking firms are unlikely to voluntarily incur costs to internalize pollution externalities. Public regulations are necessary to induce firms to curb pollution. 1 From firms’ perspective, while environmental regulations might compel them to reduce pollution, they often increase production costs. 2 Given the cost reduction focus of global markets, these regulations will arguably make domestic firms less competitive globally, all else equal. Eventually, governments will have to deal with the trade offs between lowering regulatory costs and lowering pollution levels. While some groups will favor pollution reduction, globalization critics fear that the structural and ideational contexts in which most governments function will lead them to prioritize lowering regulatory costs over lowering pollution levels. In sum, an increasing exposure to global trade will abet regulatory races to the bottom leading to increased pollution levels. This paper challenges the argument that increasing exposure to global trade abets regulatory races. We believe that the existing research on this subject is problematic on both conceptual and empirical grounds. While trade competition is the central driver in the regulatory race hypothesis, the trade-environment literature has made surprisingly little effort to measure competitive pressures that strategically interdependent countries face in their trading environments, and then relate these 1 2 Pigou 1960, but see Coase 1960; Ostrom 1990. For a contrary perspective, see Porter and Linde 1995. 3 pressures to domestic regulatory policies or outcomes. Much of the trade-environment literature tends to equate trade competition with trade salience (the trade to GDP ratio): the higher the salience, the more the competitive pressure. 3 The empirical findings it reports tend to be inconsistent: some studies find higher trade salience to be associated with lower pollution levels, 4 while others find just the opposite. 5 Conceptually, the existing literature misspecifies the key driver of regulatory races. We contend that trade salience is an incorrect measure of competitive pressures that strategically interdependent countries face in their trading environments. Regulatory races require that governments view themselves in situations of strategic interdependence which create incentives for them to respond to regulatory changes in competitor countries. 6 The trade salience does not capture this strategic interdependence simply because it is not a relational measure. It tells us how dependent is a given country on trade but does not tell anything about the competitive threats from other countries. Consider a country with a high trade salience. Assume this country is also a monopoly exporter of a scarce commodity. Clearly, this country does not face strategic interdependence in its export markets simply because there is no competitor country to whose actions it needs to respond. This example suggests that to uncover the mechanisms of regulatory races, we need to identify the 3 Antweiler, Copeland, and Taylor 2001; de Soysa and Neumayer 2005; Li and Reuveny 2006; Andonova, Mansfield, and Milner 2007; Zeng and Easting 2007. 4 See, for example, Li and Reuvney 2006. 5 See, for example, Lopez 2003. 6 According to Lake and Powell, “A situation is strategic if an actor’s ability to further its ends depends on the actions others take.” See Lake and Powell 1999, page 7-8. For more discussion on regulatory races, see Jaffe et al. 1995, Kahler 1998, Spar and Yoffie 2000, and Drezner 2001. 4 competitor countries and their regulatory policies. Only with this information can one examine how trade competition might encourage strategic behavior in the regulatory arena, thereby leading to regulatory races. To systematically investigate the regulatory race hypothesis, one needs to construct a measure that takes into account the varying levels of regulatory stringency of competitor countries and the varying levels of the competitive challenge they pose across export markets. Taking up this challenge, we introduce a new measure of trade competition, structural equivalence, to assess strategic interdependence at the level of a country dyad. Structural equivalence reflects the competitive threats a country faces from its trade competitors, defined as the ones whose firms export the same products to the same importing destinations. A regulatory race hypothesis suggests that countries respond to competitive threats from structurally equivalent competitors. Drawing on a panel of 140 countries over the period of 1980-2003 we find that structural equivalence is significantly associated with regulatory races while trade salience ((the measure of trade competition employed in extant literature) is not associated with these races. We then examine a second order question: whether countries respond symmetrically when their structurally equivalent competitors ratchet up or ratchet down their regulations? Following Kominsky, we employ our structural equivalence measure to test separately for the race to the bottom and for the race to the top hypotheses. 7 We find structural equivalence to be associated with a race to the bottom only. Thus, countries respond asymmetrically to pressures arising from their 7 Kominsky 2007. 5 competitors ratcheting down their regulations as opposed to ratcheting up their regulations. How might structural equivalence drive regulatory races? To further global competitiveness of domestic firms, governments are likely to strategically respond to the regulatory policies of those countries whose firms compete in the same product categories in the same export markets. Assume that firms located in country i and country j compete for the same overseas consumers located in country k. Country i’s government might seek to confer cost advantage to its firms by lowering regulatory stringency and/or enforcement. While its domestic pollution levels rise, its firms might become more competitive in country k. They may grab market share in country k from competing firms located in country j. Consequently, country j’s government might come under pressure from its domestic firms (probably labor employed in these firms as well) to lower regulatory stringency or enforcement simply to remain competitive against country i’s firms. If country j responds to such pressures, its pollution levels are likely to increase, all else equal. In effect, competition for market share in country k has abetted a regulatory race and resulted in increased domestic pollution levels for both countries i and j. 8 Structural equivalence as a measure of trade competition has another crucial attribute which strengthens its superiority over other measures. Typically, a country 8 By observing their competitors’ environmental policies, exporters might believe this constitutes a norm of appropriate corporate behavior. Policies to protect or neglect the environment might therefore be motivated by the logic of appropriateness. See DiMaggio and Powell 1983 and March and Olsen 1989.While we recognize that both instrumental and normative motivations might be at work towards increasing pollution levels, it is difficult to apportion variance between them. 6 faces competitive challenge from a variety of countries some of which might ratchet up regulations; some might maintain the status quo, while other might ratchet down. Which pressures will prevail and why? As a measure of trade competition, trade salience cannot capture such complexities. As we explain subsequently, given that the unit of analysis for calculating structural equivalence is a dyad, our measure of trade competition enables us to aggregate pressures arising from different competitors with varying levels of regulatory stringency in order to estimate the levels and direction of the “net competitive pressure” that this country needs to respond to. With this sophisticated measure, we are able to offer a more compelling empirical examination of the race to the bottom hypothesis. The contributions of our paper extend beyond the trade-environment literature. Our paper helps in sharpening the established diffusion and convergence-divergence debates. 9 There is a well established literature which examines how trade competition drives the diffusion of rules, norms and practices. 10 Diffusion scholars tend to observe competitive pressures either in terms of bilateral trade patterns without making any distinction among the types of goods being traded, 11 or in terms of countries’ industry-level export profiles without making a distinction in the destination of these exports. 12 These measures of trade competition can mislead. In the former, two countries exporting to the same overseas market might 9 See, for example, Berger and Dore 1994. DiMaggio and Powell 1983; Burt 1985; Guler et al. 2002; Simmons and Elkins 2004; Lee and Strang 2006; Elkins, Guzman, and Simmons 2006. 11 For example, Lee and Strang 2006. 12 For example, Guler et al. 2002. 10 7 export different products and therefore do not compete with each other. In the latter, two countries exporting similar products might target different overseas markets. Here again, they cannot be termed as competitors who are likely to respond strategically to each others’ policies. Thus, a compelling measure of trade competition must reflect both the bilateral and sectoral dimensions of trade. On this count, structural equivalence is a superior measure because it captures competitive challenge from countries whose firms export the same product to the same overseas markets. Important policy implications emerge from our analysis. Our paper suggests that domestic pollution levels are influenced by what a country exports and to which destinations. If so, domestic environmental policy should be viewed as a part and parcel of a country’s overall developmental strategy, especially if the country is relying on an export-led model. Typically, environmental regulation is decided in the environmental ministry whereas development and trade issues are handled by other ministries. What is required is an integrated system of environment and economic policy making. Our paper suggests that the choice of product categories in which to enter global markets will have an important bearing on domestic pollution levels simply because it will decide the “company a country wants to keep.” Indeed, in as much as governments encourage specific sectors for exports – through subsidies, infrastructure investment, foreign exchange provision, etc. --- they bear responsibility for domestic environmental outcomes. If the health of the domestic environment is valued by policymakers, then “exports at any cost” is clearly not a desirable policy. In a similar vein, this paper offer cautionary advice to multilateral organizations and 8 multinational banks that have sought to encourage developing countries to undertake structural adjustment which favor exports, and at the same time provided loans to the same countries to deal with environmental issues. Our paper suggests that funding agencies need to recognize the environmental implications of their economic advice, not only in terms of purely domestic considerations (which they routinely do via environmental impact analyses) but in terms of trade implications as well. Theoretical Perspective The regulatory race hypothesis can be located within an established literature that examines jurisdictional competition to attract mobile production factors. 13 The core idea is that competition to attract and retain mobile capital will create incentives for jurisdictions to lower the stringency of their regulations. The so-called Tiebout hypothesis has been widely discussed in the federalism and public finance literatures. 14 Race to the bottom arguments are similar to the Tiebout hypothesis and have been examined across issue areas including welfare spending, economic liberalization, education, and public health. 15 Three literatures examine the relationship between trade and domestic environmental regulations. The first literature blames the weakening of environmental 13 Tiebout 1955. For example, Oates 1969; Epple et al. 1976. 15 For empirical analysis in welfare spending literature, see Garrett 1998 as an example. For economic liberalization, see Simmons and Elkins 2004. For education, see Bailey et al. 2004. For public health, see Braithwaite and Drahos 1999. Donahaue 1997 attributes the phrase “race to the bottom” to Justice Brandies who wrote a dissenting opinion in 1933 U.S. Supreme Court Liggett Company v. Lee case. 14 9 laws not on domestic pressures but on the obligations that the WTO imposes on national governments. 16 The WTO, an inter-governmental regime, typically does not allow governments to impose process standards (that is, practices governing how a product is produced) on imports. Environmentalists argue that this enables exports from developing countries (with allegedly more lax process standards) to out compete firms located in developed countries. 17 As a consequence, governments in developed countries come under political pressure either to establish non-tariff barriers (which are typically not allowed by the WTO) or to dilute domestic laws. The debates over NAFTA are emblematic of these concerns. By employing the phrase “giant sucking sound” across the border, Ross Perot sought to caricaturize the regulatory challenges that the American government faces from Mexico, which arguably has less stringent environmental and labor laws. A second literature examines how trade affects macro environmental indicators (directly and indirectly via economic growth) such as pollution levels and deforestation. 18 Because trade can have different types of effects on the environment --- scale effects (increasing the scale of economic activity and leading to resource over consumption), substitution effects (encouraging existing firms to substitute one production technique for another), and composition effects (changing types of firms that populate an economy) --- trade’s overall impact on the environment depends on the sum of these effects. 19 There is an on-going debate about the empirical salience of 16 17 18 19 Charnovitz 1993; Lori and Wallach 1999. Daly 1993. Grossman and Krueger 1995. Esty 2001. 10 these different effects and about the validity of the so-called Environmental Kuznets curve hypothesis. The third body examines the “pollution haven” and the “industry flight” hypotheses: whether (and if so, why) “environmentally dirty” industries are migrating to the pollution havens in the South with an objective of exporting back the “dirty” products to the home country. Scholars have examined trends in the salience of “dirty” products in the exports of developing countries to developed countries. 20 Because businesses tend to portray the alleged problem of industrial flight as a symptom of the broader problem of over-regulation, they demand scaling back of domestic regulations. 21 Blaming free trade for regulatory races, environmentalists demand “fair trade” so that domestic firms are not disadvantaged in the world market by stringent domestic regulations. 22 The problem is that “fair trade” requires developed countries either to subject their imports to process-based standards (which the WTO disallows) or to persuade developing countries to strengthen their alleged lax regulation (which is politically difficult). This paper contributes to these debates by offering a novel way to assess the relationship between trade competition and pollution. We investigate how a country’s embeddedness in global trading networks might subject it to competitive pressures in different ways, leading to either increases or decreases in pollution levels. Trade competition among structurally equivalent countries is expected to lead to 20 21 22 Jaffe et al. 1995; Mani and Wheeler 1999. Walley and Whitehead, 1994. Charnovitz 1993; Daly 1993. 11 diffusion and mimicry of environmental standards and practices and therefore to lead to similar environmental outcomes. We observe structural equivalence in the context of network position, a concept central in social network analysis. Borgatti and Everett note that “actors who are connected in the same way to the rest of the network are said to be equivalent and to occupy the same position.” 23 Two countries might be geographically distant and have little direct contact with each other in the global economy. But if they are connected to the rest of the world market in a similar fashion, that is, if they export the same goods to the same foreign markets, they then occupy a similar network position in international commerce. This is likely to induce competition between them because from the buyer's perspective, they are substitutable. Of course, it is rare to observe exact structural equivalence in large networks of binary relationships and even harder to find it in valued networks (such as trading or communication networks) where the tie is not simply an indicator of presence or absence of a certain relationship but also a measurement of the strength of this relationship (such as the volume of bilateral trade and the number of phone calls). We follow the established practice in the social network analysis literature and employ the correlation of the two actors’ profiles of connections to capture the degree of their structural equivalence.24 In our context, structurally equivalent countries have strong incentives to be more competitive than others in order to secure or maintain access to the buyer’s market. One way to achieve an advantage, especially for developing country exporters 23 24 See Borgatti and Everett 1992, page 2-3. Snyder and Kick1979; Nemeth and Smith 1985; Smith and White 1992. 12 that often compete on cost rather than on quality, is to reduce spending on environmental protection. At the national level, governments with incentives to create a “business-friendly environment” seek to reduce regulatory costs. They avoid enacting new laws and even laxly enforce the existing ones --- all with the aim of reducing firms’ production costs. In competitor countries, these policies and practices are likely to be watched and mimicked, thereby creating a vicious circle in which all countries have strong incentives to follow one another’s move towards environmental neglect. Of course, one could argue that domestic pollution levels simply reflect trade salience, irrespective of what policies of the trade competitors. Therefore, we propose: Key Hypothesis: A country’s domestic pollution levels are correlated with the pollution levels of its structurally equivalent competitors. Alternative Hypothesis: A country’s domestic pollution levels are correlated with its trade salience. Trade could also influence pollution levels via pressures from importing markets. This is analogous to the so-called “California Effect.” Vogel’s California Effect suggests that bilateral trade serves as a mechanism for importing countries’ regulations to exporting countries. 25 The key mechanisms are customer and supplier pressure emanating from the importing country. Once a trading relationship has been established between two countries, firms located in the importing country can 25 Vogel 1995. 13 encourage, or even require, firms in exporting countries to adopt stringent practices which lead to reductions in pollution levels. The exporting firms may, in turn, require their local suppliers to adopt similar policies. 26 Our paper investigates whether a similar dynamic can be discerned in terms of a country’s overall pollution levels. Although trade competition is the primary variable of interest, we also investigate several other factors that can be expected to influence pollution levels. By the end of 2000, there were about 62,000 multinational corporations operating over 820,000 affiliates. 27 This is a dramatic change in the geography of international production over the last five decades. While globalization critics suggest that foreign direct investment (FDI) abets environmental races to the bottom, international business scholars point out that regulatory races to the bottom are rare because multinational corporations seldom base their FDI location decisions on environmental costs alone. 28 Some scholars predict that despite considerable variation in the stringency of domestic regulations, multinational corporations are likely to adopt stringent practices that are acceptable in both developing and developed countries because of the high costs of adapting different business models to different contexts. 29 FDI may then serve as a vehicle to transmit environmental norms and practices and, therefore, eventually affect host countries’ pollution levels. The economic forces of globalization such as trade and foreign direct investment are important factors that drive environmental policies. However, any 26 27 28 29 See Prakash and Potoski 2006. UNCTAD 2002. Dunning 1993; Henisz 2000; Jensen 2003. Rugman et al. 1999. 14 environmental policy is eventually made at the domestic level: domestic institutions matter for environmental policies. In this research, we chose to focus on the regime type of a country as our first attempt to understand the relationship between domestic political institutions and pollution levels. It is fair to say that the debate on the relationship between democracy and pollution levels is still largely unresolved. 30 We therefore test whether and how political institutions bear upon domestic environmental regulations and, by extension, domestic pollution levels. Data and Analytical Methods Dependent Variable Ideally, to test the regulatory race hypothesis one would examine how regulatory stringency on the ground in a given country responds to regulatory changes in structurally equivalent countries. Two problems arise. First, cross-country data on regulatory stringency levels for a large enough panel are not available. Second, there is often a gap between laws on the book (dejure) and laws in practice (de facto). Environmental laws might be enacted but not enforced. Indeed, in the United States, there is persistent under-funding of the Environmental Protection Agency, especially the enforcement wing. 31 Even with stringent laws on the book, governments might cut enforcement budgets, reduce penalties for enforcement violations, and adopt administrative policies which undermine the morale of the enforcement staff. In effect, governments can (and do) diminish regulatory stringency without rewriting the law. 30 31 For a review, see Li and Reuveny 2006. Fiorino 2006. 15 Given these limitations, we assess levels of regulatory stringency, our dependent variable, in terms of their behavioral implication: pollution levels. If laws are stringent and enforced, pollution levels will be low, all else equal. If laws are not stringent and/or not enforced, pollution levels will be high, all else equal. 32 Thus, we measure competitive pressures that bear upon domestic regulatory policies in terms of pollution levels in “structurally equivalent” countries. Taking guidance from the empirical research in the trade-environment area, we employ two response variables, one for air pollution (SO2: sulfur dioxide) and one for water pollution (BOD: biochemical oxygen demand). 33 For SO2, the variable is reported in (logged) grams of SO2 per unit of gross domestic product (measured in constant 2000 dollars based on purchasing power parity (PPP)). 34 For water pollution, the variable is (logged) grams of biochemical oxygen demand (BOD) per unit of gross domestic product (also measured in constant 2000 dollars based on purchasing power parity (PPP)). 35 Focusing on these response variables has several merits. SO2 and BOD serve as excellent variables to test the regulatory race hypothesis. They are very good proxies for the stringency of environmental regulations. SO2 and BOD are outcomes of production processes and tend to be regulated pollutants. 36 Air and water quality 32 Furthermore, regulatory measures may not capture the actual environmental practices of firms that can be expected to be sensitive to the pressures of trade competition. 33 See for example Hilton and Levinson 1998; Selden and Song 1994; Holtz-Eakin and Selden 1995; Roberts and Grimes 1997. 34 Data are from Stern 2005. 35 Data are from the World Development Indicators. See World Bank 2008. 36 We do not consider carbon dioxide as a response variable primarily because it tends to be non-regulated in most countries and therefore not a good proxy of regulatory stringency. 16 are important indicators of how economic actors respect or neglect the environment. Further, while entailing non-trivial costs, abatement technologies are available for both SO2 and BOD. Because these technologies have non-trivial costs, their adoption and the consequent reductions in pollution levels are likely to be influenced by competitiveness concerns. At a practical level, given that a panel design is necessary to test the regulatory race argument, we need to focus on variables for which data are available for a relatively long time series. 37 Indeed, longitudinal data for SO2 and BOD emissions are available for both developed and developing countries. Finally, by using SO2 and BOD variables, our work remains consistent with the established practice in two major literatures: trade-environment and Environmental Kuznets Curve literatures. Given that our work challenges an important finding in these literatures, namely the key role of overall trade salience in driving pollution levels, using SO2 and BOD as response variables should enable us to engage with a broad audience that is spread across social science disciplines. Independent Variables We are most interested in examining the role of trade competition in inducing regulatory races which eventually affect domestic pollution levels. To capture competition among countries that target same export markets with similar products, we calculate pair-wise structural equivalence based on sector-level bilateral trade data. We employ the United Nations' Standard International Trade Classification 37 This is the key reason why we do not employ response variables such as NOx emissions (Li and Reuveny 2006) and carbon footprint (York et al. 2003). 17 (SITC), Revision 2, to differentiate sectors of trade. 38 SITC classifies 1832 types of commodities traded in international markets into 10 sections, 63 divisions, 233 groups, and finally 786 subgroups. We follow the classification at sector level to categorize ten broad trade sectors in international commerce: Food and live animals directly for food; Beverages and tobacco; Crude materials, inedible, except fuels; Mineral fuels, lubricants and related materials; Animal and vegetable oils, fats and waxes; Chemical and related products; Manufactured goods, classified chiefly by material; Machinery and transport equipment; Miscellaneous manufactured articles; Commodities and transactions not classified elsewhere. Data for dyadic sector-level trade are from the United Nations’ Comtrade online database. 39 This data set covers international commerce at the dyadic level from 1962 to 2006. The Comtrade dataset details bilateral trade across different commodities to the level of five-digits Standard International Trade Classification (SITC). Aggregating bilateral trade to the one-digit level gives rise to the ten sectors just described. A correlation matrix of each country's export profile across the 10 different trade sectors and to all other countries in the world is then generated to capture this structural similarity. 40 Specifically, we calculate the first correlation between country i's and j's export profiles (that is, the Pearson correlation between their bilateral exports across ten sectors), and we construct a correlation measure capturing the structural equivalence between any two countries i and j, that is, sei , j , in 38 United Nations 1975. United Nations 2008. 40 Similar strategies have been used in Snyder and Kick 1979, Nemeth and Smith 1985, and Smith and White 1992. 39 18 the network of global trade. The value of the correlation is bounded between −1 and 1 , with 1 representing completely structurally equivalent positions between two countries, that is, exact profiles of bilateral exports across ten sectors of trade. Negative one, on the other hand, captures the situation where two countries share the most dissimilar export profiles. While countries compete in different export markets, only those exporting the same products in the same export market are likely to consider one another competitors. We assume, therefore, that for any country i, export-induced competitive pressures only come from countries that have a positive score of structural equivalence with i, that is, sei , j >0. Country i’s decision to set its environmental standards in response to competitor country j’s is influenced by the overall level of competition between these two countries. We anticipate that country i’s decision is more likely to be influenced by its key competitors in the international market. The level of this pair-wise competition is captured by their level of structural equivalence in export networks, sei , j . Therefore, for country i, the influence to set its environmental standards from a fellow exporter j can be summarized . Equiv . as wiStruc = ,j sei , j n ∑ se j ≠i , where sei , j is the structural equivalence in exports between i, j n country i and j. Note that we standardize sei , j by ∑ sei , j , that is, the total competitive j ≠i pressure faced by country i from all its competitors. In other words, j’s influence on i is a relative term, defined by the relative importance of j’s competitive pressure on i 19 n ( sei , j ) to the total competitive pressure faced by i from all its competitors ( ∑ sei , j ). j ≠i Further, we use this relative structural equivalence ( sei , j n ∑ se j ≠i ) to weight environment i, j degradation indicators (SO2 and BOD per unit of GDP) in country i’s competitor n countries: ∑ Emission j ≠i j ,t . Equiv . is therefore the weighted average of country i’s × wiStruc ,j competitor countries’ environment outcome indicators. Note that this is a typical . Equiv . spatial lag term in a spatial autoregressive model, only this time the weight ( wiStruc ) ,j is defined by structural equivalence of trade rather than physical distance. 41 In addition to trade competition, our model includes trade salience (the sum of imports and exports as a percentage of GDP) which has been used extensively in the trade-environment research. 42 Finally, our model also allows us to test for the California Effect argument. If a country’s key export markets have enacted stringent environment standards, then exporting firms will have incentives to meet these higher environmental standards. For country i, the pressure via the California Effect to adopt higher environmental standards and consequently to reduce pollution can be captured by calculating the weighted average of country i’s export destination countries’ emission levels. For country i, the weight for an export destination country j is determined by the relative importance of country j to country i as an export market. Numerically, this relative importance can be measured as the ratio of i’s exports to j 41 Beck, Gleditsch, and Beardsley 2006. See, for example, Antweiler, Copeland, and Taylor 2001; de Soysa and Neumayer 2005; Li and Reuveny 2006; Andonova, Mansfield, and Milner 2007; Zeng and Easting 2007. 42 20 ( Exportsij ) to i’s total exports ( Exportsi ). Therefore, the weighted average of country i’s export destination countries’ emission levels can be expressed in the following way: n Bilateral Exports weighted Emission Levels= ∑ Emission j ≠i j ⎛ Exportsij ⎞ ×⎜ ⎟ ⎝ Exportsi ⎠ where Emission j is the emission level in country i’s export destination country j, Exportsij is country i's exports to country j, Exportsi is i's total exports. Note that ⎛ Exportsij ⎞ ⎜ ⎟ can also be considered as a spatial weight in a spatial model context ⎝ Exportsi ⎠ ornia ( wiCalif ). It is not defined by geographical distance as in a typical spatial model, but ,j by the strength of export ties in international trade networks. We can therefore use a simpler notation W California to represent the whole weight matrix to capture the California Effect of bilateral exports on emission levels. Therefore, the whole term, n ∑ Emission j ≠i j ⎛ Exportsij ⎞ ×⎜ ⎟ , becomes a typical spatial lag term in a spatial ⎝ Exportsi ⎠ autoregressive model ( W California y ). 43 In addition to trade, foreign direct investment (FDI) is another important factor that might bear upon domestic pollution levels. We measure a host country’s overall dependence on FDI (FDI Stock) based on the argument that, irrespective of the FDI’s source, higher levels of inward FDI influence host countries’ pollution levels. FDI Stock is calculated as a host country’s total inward FDI stock as a percentage of its GDP. 44 43 44 Bilateral exports data are from IMF’s Direction of Trade Statistics (CD-ROM). Data are from UNCTAD 2008. 21 Our model controls for a variety of domestic variables that can be expected to influence pollution levels. The nature and quality of domestic institutions matter for the environment. We use the annualized polity score, which ranges from -10 for highly authoritarian states to +10 for highly democratic societies, to gauge the effect of domestic institutions (particularly, levels of democracy) on pollution levels. We include both GDP per capita (in purchasing power parity (PPP)) and its squared term in the baseline model to capture the curvilinear relationship between wealth and pollution levels (the Environmental Kuznets Curve).We also control for GDP growth rate. While higher growth rates often require more intensive use of resources and cause higher levels of pollution, they may also encourage technological advancement and human capital accumulation that might eventually improve environmental quality. Thus, the directionality of its effect is not clear. The percentage of industrial production in GDP is included because this might help us to account for the effect of the structure of production as industrial production often generates more pollution than service and agriculture. Moreover, to account for the extent to which countries rely on oil exports, we add a variable measuring the percentage of fuel exports among total exports. The conventional wisdom holds that fuel production creates higher pollution levels, especially in the case of developing countries. 45 We also include two demographic variables, population density and urban population (as a percentage of 45 For case studies on the relationship between oil export and environmental degradation, see TED reports at http://www.american.edu/TED/projects/tedcross/xoilpr15.htm#r0. 22 total population) to control for demographic influences on pollution levels. 46 Model and Empirical Findings We model levels of pollution per unit of GDP in country i in year t as a function of trade competition, trade salience, California effect, inward FDI stock, and a battery of country-specific variables. The model can be written as: W ∗ y yi,t = β 0 + ϕ yi,t −1 + X i,t β + ρ − i,t-1 + Ci + Tt + ε i,t (1) where β 0 is the population intercept, ϕ yi,t −1 captures the effects of lagged dependent variable yi,t −1 , and X i,t β the effects of country-specific characteristics such as polity, W ∗ y GDP per capita, and population density. ρ − i,t-1 represents the two temporarily lagged spatial lag terms of the network diffusion effects: structural equivalence in trade ( ρ s.e.W Struc. Equiv. y− i,t-1 ) and the California Effect through bilateral exports represents the two spatial coefficients that we ( ρCaliforniaW California y− i,t-1 ). Here, ρ estimate to capture the effects of trade competition ( ρ s.e. ) and California Effect of trade ( ρCalifornia ) on environmental outcomes respectively. Notice that in order to mitigate the simultaneity bias in the estimation of spatial lag models, the spatial lags, ρW ∗ y− i,t-1 , are lagged by one year. 47 The assumption here is whatever happened in countries that are closely connected to country i, it takes a time lag (a year) to influence the outcome in country i. Lagging the spatial lag has become a common practice in some of the recent study of policy diffusion and neighborhood effects on 46 Data on GDP per capita, GDP growth rate, industrial production, oil exports, population density, and urban population are from World Development Indicators. See World Bank 2008. 47 Beck, Gleditsch, and Beardsley 2006. 23 policy choices, 48 mainly because it provides a much simpler way to estimate the strength of interdependence (by simple OLS regression) than spatial maximum likelihood approach (spatial ML) and spatial two-stage-least-squares instrumental variable approach (2SLS). 49 However, this strategy of lagging the spatial lag terms is based on a strong assumption, that is, the absence of instantaneous effect. Meanwhile, temporarily lagging the spatial lags and estimating the spatial lag model by simple OLS can only be a sound solution to the simultaneity bias if the errors, ε i,t in Equation (1), are serially independent. 50 Including a temporally lagged dependent variable ( ϕ yi,t −1 ) often helps to mitigate serial correlation in the errors, but there is no guarantee. Therefore, using a Lagrange Multiplier test, we test the existence of serial correlation in error terms after estimating Equation (1) by OLS. We find no serial correlation in the empirical models reported in the following section. 51 Moreover, in the analysis of spatial interdependence, it is of great importance that 48 See, for example, Lee and Strang 2006, Elkins, Guzman and Simmons 2006, and Swank 2006. 49 However, with recent efforts by Robert Franzese and Jude Hays, spatial maximum likelihood approach (spatial ML) has become much easier to implement for time-series-cross-sectional data often used in political science settings. Readers interested in this topic can see any of their papers on spatial econometrics and its application in international and comparative political economy, for example, Franzese and Hays 2006; 2007; 2008. Other estimators also exist to model spatial effect or interdependence in general. For a recent application of the Arellano and Bond’s estimator, see Perkins and Neumayer 2008. 50 If ε i,t is not serially independent, for example, when ε i,t follows an AR(1) process, i.e., ε i,t = γε i,t −1 + ηi ,t , Equation (1) becomes yi,t = β0 +ϕyi,t−1 + Xi,t β + ρW∗ y−i,t-1 + Ci +Tt +γεi,t−1 +ηi,t . Notice that ε i,t −1 is the error term for the right-hand-side variable yi,t −1 (they are both at the right-hand-side of the equation) giving rise to simultaneity bias. 51 We use the bgtest() command of the lmtest package in R. 24 common external shocks (for example, oil crisis) are controlled and distinguished from interdependence. 52 Equation (1) therefore includes year dummy variables ( Tt ) to control for potential common shocks. Finally, we allow for cross-sectional heterogeneity by including country fixed effects ( Ci ). Insert Table 1 about here Tables 1 and 2 present the empirical findings regarding the impact of trade competition on air pollution (SO2) and water pollution (BOD) respectively. In Table 1, the findings from two model specifications indicate the consistent and significant effect of trade competition ( ρ s.e. ) on SO2 emission levels: country i’s SO2 emission level at year t is positively associated with the weighted average of its structurally equivalent competitors’ emission levels in the previous year t-1. Note that all our dependent variables are logged to approximate a normal distribution and rescale the extreme values. The estimated spatial coefficient of Structural equivalence of trade is 0.050 in Model 1 (Table 1). This means that if country i’s trade competitors’ weighted average SO2 emission levels increase by one unit (in log scale) in year t-1, country i’s emission level are expected to increase by 0.050 unit of logged grams of SO2 emission per unit of GDP output in the subsequent year. On the other hand, we don’t observe significant effect of the California Effect of trade ( ρCalifornia ) on SO2 emission levels as illustrated by Model 2 and 3 in Table 1. This means that exporting countries’ 52 See Plümper and Neumayer 2008. 25 SO2 emission levels are not affected by those at their export destination markets. In other words, regulations, norms, and practices regarding air pollution (SO2 in our case), no matter good or bad, do not diffuse from importing countries to exporting countries. Finally and importantly, trade salience, the key variable that previous research used to test the link between trade and pollution, is not significant across all model specifications in Table 1. The upshot is that for SO2 emissions, trade induced structural competition (as opposed to trade salience or the California Effect) is a strong and consistent driver of domestic emission levels. Insert Table 2 about here Table 2 reports findings on BOD discharges per unit of GDP. Here, we find similar results regarding the effects of trade competition, California Effect, and trade salience. There is a consistently significant and positive correlation between the structural equivalence of trade and BOD levels in all three model specifications (Models 4, 5, and 6), with as well as without the inclusion of the California Effect variable. Thus, trade competition drives water pollution levels. On the other hand, the California effect variable does not have a significant effect on BOD levels. These findings suggest that importing countries’ water pollution standards do not diffuse to exporting countries through trade. As in the case of air pollution (Table 1), trade salience is not a significant driver of water pollution. In Tables 1 and 2, only GDP growth (as a percentage of total GDP) has a 26 consistent and significant effect on both SO2 emissions and BOD discharges: the higher the GDP growth rate, the lower the levels of SO2 emissions and BOD discharges. This is good news for countries that are eager to grow their economy, because, all else equal, higher growth rates eventually reduce pollution levels: we suspect that this might be a function of technological advancement and human capital accumulation as a result of economic growth. Other variables, on the other hand, do not have consistent correlation with these two types of pollutions. Foreign direct investments are only associated with lower level of BOD discharges (Table 2; Model 4-6). The inverted U-shape Kuznets Curve is evident for SO2 emissions only (Table 1; Model 1-3). Also, the salience of industry in GDP is significantly correlated with SO2 emission only (Table 1). Population density increases BOD discharges but not SO2 emissions levels. Urban population (as a percentage of total population), on the other hand, just has the opposite effect: it increases SO2 emission but not BOD discharges. More democratic countries (polity) are associated with higher levels of SO2 emission but uncorrelated with water pollution. Finally, the extent to which one country relies on oil exports has no effect on its air pollution (SO2) and water pollution (BOD). While not reported in the tables, we also ran our baseline models separately for cold war and post-cold war periods, for non-EU countries and non-OECD countries only. The basic findings of a consistent and significant association between structural equivalence and air and water pollution hold across all these four scenarios. 27 Race to the Bottom or Race to the Top The findings from Table 1 and Table 2 establish that there are strategic interactions among structurally equivalent countries regarding their air and water pollution levels. However, a positive and statistically significant structural equivalence variable is consistent with both a race to the bottom and a race to the top. Would a country then respond symmetrically to both ratcheting up and rathcheting down of regulations in the structurally equivalent competitors? For example, as Table 1 suggests, if country i’s trade competitors’ weighted average SO2 emissions increase by one unit (log scale) in year t-1, country i’s emission are expected to increase in the following year t. However, the converse is also plausible: when country i’s trade competitors’ weighted average SO2 emission level decreases in year t-1, country i emission levels are also expected to decrease. We follow Kominsky, to establish whether the “trade competition affects pollution” argument holds separately for downward races and upward races. 53 To do so, we estimate an additional model (Table 3) to see whether the variable “structural equivalence” retains significance when country i’s trade competitors’ weighted average emission levels increase from the previous year --- a race to the bottom scenario, or whether it retains significance when country i’s trade competitors’ weighted average emission level at year t is lower than from that of year t-1 --- a race to the top scenario. More specifically, we estimate the following model: yi,t = β0 +ϕ yi,t −1 + Xi,t β + ρbottomDi,tW struct.equiv. y−i,t-1 + ρtop (1− Di,t )W struct.equiv. y−i,t-1 + Ci + Tt + εi,t Notice this is essentially the same model as in Equation (1) in the previous section 53 Kominsky 2007. 28 except that we delete the spatial lag term for the California Effect of trade, ρcaliforniaW trade y− i,t-1 , because it has no significant effect on pollution levels. Moreover, we split ρ s.e.W Struc. Equiv. y− i,t-1 into ρbottomDi,tWstruct.equiv. y−i,t-1 + ρtop (1− Di,t )Wstruct.equiv. y−i,t-1 where .equiv. .equiv . Di,t = 1 if wistruct y j ,t > wistruct y j ,t −1 ( j ≠ i ), that is, Di,t = 1 when the weighted , j ,t , j ,t average emission level of country i’s trade competitors’ at year t increases from the previous year (t-1); Di,t = 0 otherwise. Therefore, the spatial coefficient ρbottom is only associated with cases in which country i’s trade competitors increase their emission levels to put country i at a cost disadvantage relative to the previous year. A positive and significant ρbottom means that country i responds by following up and increasing its own emission levels --- this is, therefore, evidence supporting the race to the bottom mechanism. ρtop , on the other hand, tests whether country i responds when its competitors decrease their emission levels on average. A positive and significant ρtop therefore supports the race to the top mechanism. Insert Table 3 about here Table 3 reports our results on the two mechanisms of strategic interactions (race to the bottom and race to the top) based on the analysis of SO2 (Model 7) and BOD (Model 8). We find a positive and significant ρbottom that supports the race to the bottom mechanism, SO2 emissions only. In other words, with regard to SO2 emission, when structurally equivalent competitor countries lower the stringency of their regulations as proxied by increased SO2 emissions, the focal country i responds 29 in the subsequent time period by lowering its regulatory standards, as reflected in increases in SO2 emissions. Importantly, we find no empirical support for the race to the top mechanism for either SO2 emission or BOD discharges: the positive signs for ρtop for both SO2 emission and BOD discharges are far from conclusive as indicated by their p-values in Table 3. 54 Conclusion and Policy Implications Our paper demonstrates that for the period 1980-2003, trade competition induces strategic interactions among structurally equivalent countries in environmental regulations that are eventually reflected in the levels of air and water pollution. More interestingly, for air pollution (SO2), we find that while countries do not respond to competitors’ improvements in air pollution levels, they follow when competitors reduce the stringency of their regulations. Furthermore, unlike the previous literature, we do not find support for the argument that higher overall exposure to global trade (trade salience) leads to either environmental protection or degradation. Thus, while concerns about races to the bottom have some empirical support, our paper suggests that the causal story is somewhat different from what globalization critics as well as some trade-environment scholars portray. If policy implications need 54 We suspect that two reasons might cause the different findings between air pollution (SO2) and water pollution (BOD) levels. First, economic activities that generate air pollution (such as electricity generation, manufacturing, etc.) are often more widespread in a typically exporting economy than activities that contribute to water pollution. Further, for most exporting industries, air pollution (SO2) abatement costs are typically much higher than water pollution (BOD) abatement costs and therefore more susceptible to regulatory races. However, the issue of regulatory races in various pollutant types needs a more careful examination. 30 to cohere with the causal story, our paper suggest that global trade is not the culprit and abolishing or enfeebling the World Trade Organization may not directly serve to mitigate incentives for races to the bottom. A more sophisticated understanding of why countries tend to have different types of trading portfolios and why they are embedded in different types of trading networks and how both of these might be changed is required. For example, if trade agreements which tend to privilege “insiders” over “outsider” tend to divert trade as opposed to create trade (an issue that is debated in the international trade literature), then this will bear upon the composition of the trade network and therefore influence competitive pressures a county faces. Our paper brings both good and bad news to environmentalists and activist groups that are worried about the environmental consequences of global trade. Their task is to manipulate the trade context in which countries operate in order to encourage upward races or discourage downward races. Indeed, environmental groups can harness the trading system to their advantage if they can identify the key trade competitors of a given country and then work on improving environmental laws and practices in these competitor countries. The challenge is to identify the pressure points and to subject them to political and economic pressure to improve levels of environmental protection. Indeed, activists are already adopting such strategies via public politics and private politics. 55 In addition to lobbying the government, activists have created a variety of voluntary programs which encourage, and sometimes coerce, firms to adopt 55 See Baron 2001. 31 beyond compliance environmental policies. Thus, in response to the pressures from global markets to reduce costs, pressure from activist groups might actually encourage firms to incur new costs in order to get rewards in the form of reputation and other benefits that membership in such programs and certification codes confers. The burgeoning literature on voluntary programs provides initial evidence that such dynamics might be at work in several industries. 56 In sum, activist pressure via voluntary programs could mitigate the pressure from global markets to neglect the environment in order to reduce production costs. 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