From start to finish of this superb book, I want Mariana Mazzucato
to be right. In The Entrepreneurial State, Mazzucato suggests that the state
has had a much more powerful role in stimulating innovation that the dominant
narrative admits. The state pushes the key breakthroughs; private firms enter
the game quite late (though they often capture an inordinate amount of the
social gains from innovation).
Mazzucato’s book is timely (indeed, it has had a
considerable impact in Brussels), as countries shift away from austerity
policies and look towards Keynesian-style spending to get their economies
moving. Keynes famously suggested burying a treasure in an abandoned mine as a
make-work project (his point, of course, was not to endorse pointless exercise;
rather, he meant to show that pure make-work could act as a stimulus).
Mazzucato argues countries can improve on Keynes by spending on state
entrepreneurship. In a best-case outcome, state-sponsored innovation will shock
the economy back to expansion and will lead to frontier-shifting welfare gains.
And maybe it would - if the political class could be
convinced by Mazzucato’s account of the hidden state-centric nature of
innovation. Her recent historic examples involve pharmaceuticals and
information technologies. The private drug development narrative is
deliberately cultivated by Big Pharma: bold firms undertake massive R&D in
their laboratories, to be rewarded (in the event of success) by patent
monopolies. Big Pharma asks to be ‘left alone’ by the State: no tort liability
and quick market approvals are the best policies. In fact, Mazzucato observes,
it is the state that undertakes the greatest risks in developing new approaches
and active agents, through public funding (such as NIH grants in the United
States) of medical research. Left to their own devices, Big Pharma would
undertake little research; indeed, the current trend among large pharmaceutical
firms is to reduce R&D expenditure and to look to smaller,
research-oriented firms to do later-stage development work, then in-licensing
or acquiring fairly proven projects. But without the substrate of state-funded
science, even this system would grind to a half.