This question is prompted by my reading of Innovation and Its Enemies, Why people
resist new technologies, a recently published book by Calestous Juma. The
author takes much of his inspiration from Joseph Schumpeter, who famously
described the innovation process as one of creative destruction. Juma argues
that new controversial technologies are likely to enjoy more local support “where
the business models include provisions for inclusive innovation”. I will
explain later.
As the title suggests, the book explores resistance to
introduction of new technologies. It does this mainly by telling the stories of
nine innovations: coffee, printing of the Koran, margarine, farm mechanization,
AC electricity, mechanical refrigeration, recorded sound, transgenic crops, and
AquaAdvantage salmon.
Anyone who has an interest in innovation is likely to enjoy
reading the stories presented in this book. Without reading a book like this
one it would be difficult to fully appreciate that goods, like coffee, that are
now commonplace, were once highly controversial innovations. The stories told
in the book make me wonder whether future generations will look back with
bemusement about my concerns about artificial intelligence and neural lace.
Although Calestous Juma delves into history in these case
studies, he does not seek to provide much historical perspective on changing
societal attitudes toward innovation. I doubt whether he believes that we are
living in a time when opposition to innovation is particularly great by
historical standards, but his views on such matters are not obvious from this
book. Readers need to look elsewhere (e.g. The Enlightened Economy, by Joel Mokyr) for an understanding of the industrial
enlightenment that began to occur in western Europe around 300 years ago. The
author’s neglect of this big picture of attitudinal change is surprising in view
of his acknowledgement that he obtained “early inspiration” from an article by
Joel Mokyr on innovation and its enemies.
The stories told in Juma’s book are enlightening about the
nature of resistance to new technologies. The general message is that
resistance should not be lightly dismissed as irrational fear of change:
“Many of these debates over new technology are framed in the
context of risks to moral values, human health, and environmental safety. But
behind these genuine concerns often lie deeper, but unacknowledged,
socioeconomic considerations. This book demonstrates the extent to which those
factors shape and influence technological controversies, with specific emphasis
on the role of social institutions”.
One of the things the book demonstrates is that resistance
to innovation is often fuelled by people who have reason to fear competition
from new products and new ways of doing things. Those faced with potential for
economic loss have used every trick available in an attempt to protect
themselves from the consequences of innovation. It is certainly true that many
members of the public have genuine concerns about the potential impact of
innovations on public morals, health and the environment, but the losers from
change often exploit such concerns mercilessly to persuade governments to
protect their interests. Thankfully, since the industrial enlightenment, the
efforts of the losers to protect themselves from new competition have not been particularly
successful.
Although he has chosen a similar title for his book, the
author is clearly not a fan of Virginia Postrel’s The Future and its Enemies (which I discussed here).
He has little faith in the capacity of the spontaneous processes of free
markets to manage innovation:
“Managing the interactions between change and continuity
remains one of the most critical functions of government”.
Again:
“Political leadership on innovation and the existence of
requisite institutions of science and technology advice are an essential aspect
of economic governance. Such institutions need to embody democratic practices
such as transparency and citizen participation that accommodate diverse sources
of expertise”.
The author’s apparent faith in government regulation of the
innovation process sits oddly with his acknowledgement of shortcomings in
existing regulatory processes which focus largely on the risks of introducing new
products. He acknowledges that these processes often fail “to compare the risks
and benefits associated with the new product to those of existing production
systems, even though it is precisely this difference that should form the basis
of a regulatory decision on new technologies”. The author also acknowledges the
potential for consumer protection regulation to be used for protectionist
purposes:
“What may appear as a legitimate appeal for the right to
know may in fact be driven by an effort to brand a product so it can be
rejected by consumers for protectionist reasons”.
I agree with the author that sensible political leadership
is a fundamental requirement, but sensible political leaders will aim to
confine regulatory interventions to those circumstances where there are good
reasons to fear that spontaneous processes might lead to outcomes that will be
widely regretted. When political leaders set out to manage interactions between
change and continuity they open their doors even further to interest groups
seeking preferential treatment. It would be nice to think that sensible
policies and social harmony will emerge from citizen participation that
accommodates diverse sources of expertise, but experience suggests that elected
politicians are more representative of broader community interests than are the
interest group spokespersons that governments select as citizen representatives.
The most likely outcome is for the interests that would be represented in such
forums (e.g. consumer, environmental, industry and union groups) to conspire to
protect their interests in regulating markets, at the expense of the interests
of the broader community in allowing free competition to determine outcomes
under most circumstances. The critical requirement for sensible policy
development is for the claims of interest groups to be subjected to critical
scrutiny within the context of a public inquiry process that is capable of
providing trustworthy independent advice to governments. (Australia’s
Productivity Commission may provide a useful model for other countries to
consider.)
Calestous Juma suggests several ways in which innovation could
be made a more inclusive process: greater involvement of public sector
institutions in providing training in the emerging fields; creation of joint
ventures; equitable management of intellectual property rights; segmentation of
markets to enable the technology to be used for non-competitive products, and
improvement of the policy environment to support long-term technology
partnerships.
Smoke and mirrors may help political magicians to appear to
be ‘inclusive’, but they cannot alter the fact that some people are adversely
affected by innovations that provide widespread benefits to the broader
community. In her book, Bourgeois Equality, discussed on this blog a
couple of months ago, Deirdre McCloskey uses the term, ‘bourgeois deal’ to refer
to societal acceptance of innovations that compete with and displace old ways
of doing things in exchange for widespread improvements in living standards. I
doubt whether ‘inclusive’ innovation policies - even if designed by intelligent
and well-meaning people - can do much to help sustain public support for the
bourgeois deal. Ongoing support for the bourgeois deal depends on expectations
that innovation will continue to generate widespread improvements in living
standards.
Postscript:
Calestous Juma has responded as follows:
Postscript:
Calestous Juma has responded as follows:
"I appreciate your thoughtful review of my book. You raise
important points that need addressing. First, you wondered why I did not
address the question of whether public attitudes on new technologies have
changed over the centuries. I address this issue by showing that the public
responses to new technologies appear to be conserved over the 600 years that
the case studies cover. At face value this may appear not to be the case
because of the remarkable proliferation of technology into every aspect of human
life. I think that the change has been in the availability of technologies due
to the exponential growth in science, technology and engineering. Public
perception of technological risks has not changed, mostly because as humans we
have not changed in any discernible way over the last 600 years. We have not
found a way to reprogram the amygdala, to simplify a little.
Now to your more complex question: is inclusive innovation
compatible with creative destruction? My answer is yes. In many cases
disruptions, to use the term in a more prosaic way, is largely a result of the
business model used. There are two examples that illustrate this. The
introduction of mobile phones in Africa was by any measure disruptive. But it
was also inclusive because from the outset the focus was to ensure that the
poor had access to the service. Inclusive innovation was achieved through
low-cost handsets and pre-payments for airtime. The early concern that mobile
phones would be toys for the rich never came to be. The second example involves
the strategies adopted under the Montreal Protocol to develop alternatives to
the ozone-depleting substances. In this case those firms such as DuPont that
were likely to be disrupted by alternative chemicals were included in new
research efforts. The Protocol went further and introduced an amendment that
promoting the sharing of the new technologies with developing countries.
Both examples involved private-public partnerships that were
committed to promoting inclusive in innovation. In both cases incumbent
technologies were displaced. Both case provide lessons of inclusive innovation.
We can trace other examples of inclusive innovation in history. We have café au
laite, as the name advertises, because of compromise to create a recombinant
product. Proposals for co-existence are not new. It was tried, without success,
to leave a niche for horses in American agriculture in light of the relentless
march of tractors. The proposal came too late and the superiority of tractors
over horsepower illustrates that there are many areas of technological
transformation where inclusive innovation is not a viable option. In other
cases there has been a long period of co-existence between butter and
margarine. This wasn't a result of an inclusive innovation strategy but it
offers some lessons worth considering."