Europe’s House Divided

The recent focus in Europe has understandably been on security. The European Union committed to massive support ($54 billion) for Ukraine, Donald Trump again put America’s commitment to European security in question with his remarks on NATO, and Alexei Navalny died at 47 in a Siberian penal colony. These were the leading topics at last weekend’s Munich Security Conference. But poor economic performance is the deeper problem in Europe and will remain so after memories of the conference fade. There are solutions available. Whether Europeans will choose to pursue them is the question.

The single market has been the great success of European integration. However, the EU’s 27 member states retain considerable authority over defense, telecommunications, finance, and energy. The economic integration of the continent seems to be reaching its limit under the current governance structure. This harms competitiveness, because national entrepreneurial energies are directed to national companies that serve national markets, some of which are very small. While the overall EU market is enormous (448 million people), the great majority of European companies, especially small and medium enterprises (SMEs), develop and market their products for national markets.

One clear solution would be to reduce the inherent barriers that keep European competitiveness trapped in 27 individual boxes. This is likely to be the main focus of two reports for the European Commission, one on the internal market and another on EU competitiveness. The first will probably arrive in April and the second in July.

But will dramatic steps toward greater integration be taken? The chances don’t seem good. The EU’s recent embrace of industrial policy has hugely privileged the largest economies, Germany in particular. Faced with Covid and then the Russian invasion of Ukraine — followed by an American turn to industrial policy under Joe Biden, notably for green industries and products — the EU, under Commission President Ursula von der Leyen, turned on the aid spigots. The funding went to deal with Covid, reboot European weapons production, stimulate the greening of the European economy, and triangulate economic aid in relation to US priorities as revealed in the Inflation Reduction Act, among other goals. The biggest beneficiaries of this sudden largesse were the economies with the greatest capacity to answer policy needs. Not surprisingly, these were also the largest economies. About half the aid between March 2022 and August 2023 went to Germany — half, that is, of €733 billion.

In such a situation, the willingness of smaller European countries to give up what control they retain over defense, telecommunications, finance, and energy is going to be limited. The brain drain from smaller to larger economies has further fueled resentment of the major European powers and left large parts of the region populated mainly by the elderly or by younger people who are either determined to stay in place or feel that they have little choice. Given these dynamics, the growth of nationalism in smaller or medium-sized electorates, and in the less developed parts of larger ones, seems inevitable. It would directly militate against the political viability of further economic integration. So would the ongoing flow of European capital to the US in that it acts to reduce investment in Europe.

Still, the European model of governance innovation has always been a kind of crisis response and Europe is now rich in crises. Russia’s actions in Ukraine inspired a surge in European defense spending, reviving a sector that had been in decline. The first Trump administration delivered a severe shock to Europe; a second would do the same. Some European reformers joke that a Trump presidency might be just what it takes to reinvigorate the European project. Kamala Harris, at the Munich Security Conference, carried a message of reassurance about American commitments to Europe, but she might not be in any position to fulfill that promise.

Investing in Europe necessitates close attention to these dynamics. Large-scale EU industrial policy is likely to continue for some time. The EU is participating in an “onshoring” cycle that is just as vigorous in China, the US, and India. Each of these reacts to the others, deepening the replication of production in the world’s largest economies. Selling further integration to European electorates will probably require more emphasis on industrial policy rather than less, along with a serious commitment to making Europe more competitive and less dependent upon the US and China. This seems certain to create new trans-Atlantic tensions as the US reacts to European “protectionism.” In many ways, an integrated trans-Atlantic market seems to be the only long-term solution for a Europe in demographic decline, but the chances of it are getting lower.

India’s “New Era”

Growing tension and economic decoupling between the US and China have prompted many investors to move their capital from China to India or other growing Asian economies. India is projected to maintain growth between 6% and 7.5% into the second fiscal quarter of 2024, and Morgan Stanley and Goldman Sachs alike expect it to be the focus of international investment in developing economies for the next decade, much as China was earlier. India offers a business environment that is comparatively free from the demands of an authoritarian state in the China mode. For different reasons, the United States is also investing a lot of political capital in India. But while India is an attractive alternative to China there are important reasons for investors to be cautious as well.

Freedom of the press in India and access to accurate information have become serious problems as major publications and platforms are now dominated by wealthy individuals or conglomerates loyal to the ruling BJP party. Party activists have been mobilized to monitor and harass journalists or sources who might be inclined to criticize government policy.

Political success requires large amounts of money and the BJP has been nourished by crony capitalism. The system was described by the Chairman of the Reserve Bank of India, Raghuram Rajan, as a “cycle of dependency”:

The crooked politician needs the businessman to provide the funds that allow him to supply patronage to the poor and fight elections. The corrupt businessman needs the crooked politician to get public resources and contracts cheaply. And the politician needs the votes of the poor and the under-privileged.

In the process, however, the economy is reduced to a kleptocracy from which open markets, competition, rational price mechanisms, transparency, and the rule of law disappear. The most outrageous example in recent decades has been the career of Gautam Adani, who rose to power along with Narendra Modi after religious riots in Gujarat in 2002. Adani was briefly the third richest man in the world until Hindenburg Research published a report that implicated the Adani Group in fraud on a massive scale.

The government has also begun to weaponize the Indian Revenue Service against its opponents. When the BBC released a documentary last year that was critical of policies towards Muslims, the government responded by banning the film and ordering the IRS to raid BBC offices in India on suspicion of tax evasion. This is only one of the more prominent examples of the BJP’s use of government agencies to bully political opponents and discourage open criticism.

The judiciary has attempted, with some success, to retain its independence, but the BJP has persevered in its efforts to dismantle the Supreme Court’s defense of precedent and constitutional law. This has allowed a powerful executive branch to delay or disrupt the judicial process and, with a compliant Chief Justice, to assign politically significant cases to judges sympathetic to the ruling party. Investors should bear in mind that political expression is no longer entirely free in India. The V-Dem Institute in Sweden now describes the country not as “democratic,” but as an “electoral autocracy” similar to Hungary, Turkey, or El Salvador.

The accusation is no more troubling for Narendra Modi, leader of the BJP and Prime Minister of India since 2014, than it would be for Recep Tayyip Erdoğan in Turkey. It may still not appear to be a serious concern to foreign investors in India. But even if foreign journalists are inclined to treat the economic success of India as if it could be distinguished or detached from aspects of BJP or Modi himself that they regard as unethical or even criminal, it is far from certain that this can be done.

The Biden administration seems to have calculated that the US-India strategic relationship must be maintained regardless of the BJP’s rhetoric or policies. In 2005, Modi had been banned from entering the US due to his “severe violations of religious freedom” while Chief Minister of Gujarat. He was only allowed to enter the US after he became Prime Minister in 2014. Now, however, he is welcomed with lavish receptions at the White House, a confirmation of the place that India has come to occupy within the global network of American partnerships. Barring any extraordinary shifts in the strategic balance between the US and China in the Indo-Pacific region, it can be assumed India will not be subject to economic sanctions or other punitive measures by the US or its allies, even if there were otherwise reason to apply them.

The BJP and its rhetoric recall the politics of the far right in Europe: a profound sense of grievance, an appeal to a mythic past, and repeated calls for public mobilization. Modi has described a Hindu majority under Muslim rule as having suffered “a thousand years of slavery” that India will no longer tolerate. He has increasingly shown what that might mean, for example with his commemoration a famous attack on a mosque.  On 6 December 1992, some 200,000 Hindu nationalists attacked the Babri Masjid, a mosque built by the Mughal emperor Babur. The violence would not only provoke rioting across India, it would also transform political and social life in the decades that followed. In January 2024, Modi presided over the lavish inauguration of a new Hindu temple where the Babri Masjid once stood. “We must not bow down anymore,” the Prime Minister insisted as he announced the beginning of “a new era.”

Other mosques are now being targeted for demolition and other excavations at other monuments continue as the BJP attempts to create a new history from tales in ancient epics, but its quest for a purified Hindu India is based on the assumption that one community will win as another loses. It is all too easy, however, to imagine a future in which both will be diminished.

Hedging the Middle Powers

As Central Intelligence Agency director William Burns has been understandably circumspect in making public statements, on or off the record, his article last week in Foreign Affairs made news. The FA promotional material stressed Burns’s reflections on how the CIA is adjusting, and must adjust, to the times. News coverage of his article focused on Ukraine, Russia, and Iran. In SIG’s view, however, the most interesting passages were on “middle powers” vis-à-vis US-China relations.

“In this volatile, divided world,” Burns wrote, “the weight of the ‘hedging middle’ is growing. Democracies and autocracies, developed economies and developing ones, and countries across the global South are increasingly intent on diversifying their relationships to maximize their options. They see little benefit and plenty of risk in sticking to monogamous geopolitical relationships with either the United States or China.” Unlike many in the US intelligence community, Burns does not go on to say that states will need to choose which side they are on. He simply accepts the situation as a reality that the US must accept and address rather than hope to reverse.

To be fair to the reporters linked above, Burns’s passage on the “hedging middle” was not new and therefore not really news. Somewhat surprisingly, the passage and indeed much of the FA article had already been published in July of last year in the Washington Post, an opinion piece that was itself adapted from remarks that Burns had made earlier that month at the Ditchley Foundation. Even the somewhat off-kilter metaphor of open geopolitical marriage survived from the earlier speech.

Still, Burns’s acceptance of the legitimacy of middle powers keeping their options open is important to register. It is one thing to say, as Burns has been saying for a number of years, that the days of US hegemony are over. It is quite another to draw from this the conclusion that the US just has to make do with autocracies or democracies, as the case may be. Indeed, that implication runs counter, at least in spirit, to President Biden’s “summits for democracy” policy.

Burns’s vision is probably close to what Biden actually thinks about alliances and democratic values, as distinct from what he sometimes says. After all, Biden would have had opportunities, in eight years as vice president, to push the Obama administration toward an explicitly values-based or activist foreign policy. But Biden, who was the youngest member of the Senate Foreign Relations Committee in the mid-1970s and left it as chairman in 2009 when he entered the White House, tended to come down on the pragmatist side as vice president and has kept to that path as president.

This was a departure from the Clinton-era Democratic Party. It emerged in the Obama administration. Obama’s antagonism toward the foreign-policy “blob” normalized a pattern of public idealism atop policies of taking “the world as it is,” a phrase that gave top Obama foreign-policy advisor Ben Rhodes the title of his memoir. The pattern has continued under Biden and solidified into a doctrine, or at least an idea, of how to deal with “middle powers.”

It's hard to know where the idea originated, but one can easily imagine Burns playing a major role. The son of a general who was very active in policy-making, Burns was the most celebrated professional diplomat of his generation. Of the Biden national-security triumvirate of Blinken-Burns-Sullivan, Burns was the only one with many years of experience dealing directly with foreign friends and adversaries. This made him unique among CIA directors, and his unusual para-diplomatic assignments under Biden, along with his being given cabinet status, have reinforced his unique position. So do his singular personal qualities. As anyone who has met him will attest, he is an almost extravagantly modest person, starkly different in that respect from many of his predecessors. (A collection of oral histories about Burns’s State career captures this and similar qualities in the words of his contemporaries.) He has a mesmeric ability to inspire trust among enemies as well as friends. His personality and professional practice alike suit him to accepting and dealing with a “hedging middle.”

This could soon have domestic political consequences. It has often been noted that Biden’s China policy continued Trump’s China policy, and as a result has enjoyed a bipartisan support otherwise almost absent from US politics. Biden has even taken the approach to new lengths with his adoption of a China-focused industrial policy and a much more extensive program of techno-containment than Trump had attempted. The trade deficit with China has shrunk to the level of 2003, and US tech companies are benefitting from government encouragement while China’s tech sector is still struggling to adjust to Xi Jinping’s much more heavily interventionist policies. But the Biden administration has not stressed either the Trumpian “business” approach, which emphasized that China was an unfair competitor, or the values approach, which was more an appeal by Trump’s advisors for a moral confrontation with Chinese Communism. Both of these can be expected to form the core of the Trump campaign’s attempt to differentiate its China policy from Biden’s. It is hard to imagine a second Trump administration displaying any tolerance for a hedging middle constantly weighing its options. As before, nations will probably be pressured to make a choice between the US and China.

Between now and November, the Biden administration will likely stick with its policy of trying not to force other countries to choose between the US and China or between democracy and autocracy. The policy has the public endorsement of Burns and Sullivan, and a bit less enthusiastically of Secretary of State Blinken. It is definitely an investor-friendly policy and, in its way, globalization-friendly during a period of anti-globalization still under the shadow of Trump’s successful appeal to economic nationalism. But it might not be permanent, and investors will want to do some hedging of their own in preparation.

Green Poverty?

The first wave of backlash against environmental, social, and governance (ESG) standards focused on the sacrifices in efficiency involved in compelling corporations and investors to comply with unclear standards that raised costs and redirected capital. A second and more subtle wave has been gaining momentum over the past year. Environmental standards are joining with social and governance standards to create a new global investment landscape. Some areas that were preferred destinations before ESG factors were considered have become less desirable, while other areas that once seemed too expensive for investment now seem more attractive. The emerging pattern is one in which supply chains are assessed in avowedly ethical terms, to the economic detriment of poorer parts of the planet. Whether this will lead to a world divided into wealthy and self-consciously virtuous countries and others that are regarded as chronically poor and chaotic remains to be seen. In SIG’s view, however, certain ESG trends are combining with technological and security-driven issues in ways that will ultimately shape the global distribution of wealth.

Europe has been the leader. Germany has played a leading role in developing standards that bring human-rights and environmental concerns together in ways intended to mold major business decisions. In particular, its concerns are expected to shape anticipated European Union regulations. Although such rules are not intended to make anyone poorer, the countries with the strongest records on environmental, social, and governance concerns tend to be wealthier, democratic, educated, and industrialized. When ESG standards are applied to domestic companies’ overseas investment decisions — or, what amount to almost the same thing, sourcing rules are applied for supply-chain inputs — one effect is to realign supply chains such that investment is biased toward countries that are already relatively high up the ESG ladder. As transport costs are a major factor in carbon use, ESG priorities also enhance the importance of geographical proximity, which itself often reflects the existing distribution of wealth. As the Financial Times put it in reporting on Macquarie’s record 8 billion euro infrastructure fund, “there has been a revival of interest in infrastructure as businesses seek to profit from transitions to cleaner energy and supply chains that are closer to consumers.” If a plant in Poland and a plant in Pakistan could deliver the same product to the European market at the same price, then the Polish product would prevail because its transport to market would be less. And as European infrastructure improved, the Polish advantage would grow.

Moreover, because there is a rough but clear human-rights and democratic-governance geography that privileges Europe, the island nations of east and southeast Asia, and the Americas, the application of human rights and governance standards unintentionally reinforces the physical geography of carbon reduction in transport. In effect, investment and growth become increasingly centered on geographies where they are already greatest.

Less-developed countries have long seen environmental standards as a way for rich nations that were once imperialist and colonialist powers to pocket the productivity benefits of two centuries of industrialization while spreading the environmental costs over the rest of the world. The reality is more subtle. After all, the expansion and diversification of production during the most recent episode of globalization, along with the provision of higher education and the dissemination of intellectual property, have all been driven by rich-world economies. In other words, the fruits of earlier, and very dirty, industrialization are beginning to be shared, albeit in ways that are also self-serving. The great rich-world universities, for example, have been fattened on inequalities of many kinds, but the excellence that resulted is now shared — at a price — with Chinese and South Asian students, most of whom will take this knowledge home. It is a heavily mediated and uneven form of redistribution, but it is still redistributive. The same is true of the diffusion, from wealthy centers, of intellectual property and productive methods and processes, as well as finance capital. In their universities, as elsewhere in their economies, wealthy countries seem to have more productive intellectual capital than they can absorb. Globalization has helped to redistribute that capacity, to the benefit of less developed countries.

The growth of ESG standards is likely to inhibit that redistribution, not just on its own but as it reinforces rich-world policies for reshoring production due to security reasons. Although the desire to have supply chains that are as green and human-rights-friendly as possible may not seem to have much in common with the wish to have a secure supply of semiconductors, all three point in roughly the same direction: the re-concentration of production in higher-wage areas that are physically nearer the centers of global wealth and power. Intellectual, industrial, and perhaps financial capital are likely to become less rather than more evenly distributed, as areas close to the centers of power gain further advantage.

In Latin America, for example, the US is determined through the framework of the Americas Partnership for Economic Prosperity (APEP) to support the growth in Latin America of production capacity in clean energy, semiconductors, and medical supplies. This is the classic post-Covid trifecta of environmental, technological, and public-health as shaped by ESG and security concerns. APEP’s spring 2025 meeting in Costa Rica will focus on semiconductors. Investment in that sector in Central America would not be as likely in the absence of the near-shoring effects of ESG and security priorities.

So is the change in patterns of green investment simply another vector for the division of the globe into production blocs? Not quite, or not yet, mainly because China is investing in many of the same sectors in many of the same locations. Its Latin American priorities have shifted from traditional infrastructure to data centers and 5G networks. In line with its own strategic priorities, China is now stressing clean-energy and agricultural biotech investments in Latin America as well. China may not care about social or governance issues, but it cares very much about clean energy and the global food supply. Both are critical to its long-term survival and it cannot secure either on its own. This in turn has led China to invest heavily in green shipbuilding, part of a large and ongoing Chinese effort to increase its share of the industry. As China already produced 48% of global shipyard output in 2022, countries such as the United Kingdom have begun to invest more in their own capacity to avoid dependence on China. In short, neither strategic competition nor green initiatives inevitably cause an in-gathering of production. In some cases and at some times, they can have the opposite effect. Factors of production can become more diffused despite the wishes of the major players.

Proxy Votes in Baluchistan

When Iran fired missiles across its border into Pakistan’s Baluchistan province on 16 January, it announced that its targets were bases belonging to the anti-Iran insurgent group known as Jaish al-Adl (Army of Justice). The Associated Press reported  that “a military response from cash-strapped Pakistan” was unlikely, but within 48 hours Pakistan retaliated with missiles and sent fighter jets into Iranian airspace. Pakistan claimed that it was targeting anti-Pakistani insurgents operating from Iranian territory.

As anxiety about Iran asserting power beyond its borders has increased after Hamas attacked Israel on 7 October 2023, and after Iranian proxies in Yemen responded to Israeli counter-attacks in Gaza, any cross-border Iranian actions are going to cause alarm—especially if they are conducted against Pakistan, a nuclear power with a Sunni-dominant political culture.

It is true that an argument can be made to dial down worries about the Iran-Pakistan missile exchange. Iran, Pakistan, and Afghanistan all contain large areas of territory dominated by the Baluch people. Indeed, Baluchistan is Pakistan’s largest province in land area—but also its least populated and arguably least developed. Although military-heavy, authoritarian, and ruthless governments might be assumed to have the means to protect their own borders, Iran, Pakistan, and Afghanistan have never been able to assert their sovereign power convincingly in Baluchistan. Relations between the three states being fraught, Baluchistan has for years been a reliable source of irritation for its putative overlords and a place for them to contest with each other. Trouble in Baluchistan is hardly new.

But for just that reason the current level of Pakistan-Iran conflict seems disproportionate. Jaish al Adl had killed a dozen men at a police station in Iran, a depressingly common form of Baluchi skirmishing. Lobbing missiles over a border, in retaliation for such a familiar provocation, was new, as was Pakistan’s emphatic response.

The Iranian action may be easier to understand. Most analysts believe that it was a show of strength at a time when the Iranian regime feels threatened. The killing of 84 people gathered In Kerman at the grave of the Iranian major general Qassem Soleimani—who was assassinated on 3 January 2020 in an American drone strike—was yet another outrage by Islamic State and may have been encouraged by Pakistan. There is no doubt that Islamic State had a particular interest in Soleimani, who had been the mastermind behind Iranian force projection in Iraq and Syria against Sunni extremists. He had therefore become both a source and a symbol of Iran’s use of force beyond its own borders, which was why the US decided to assassinate him. The two Islamic State suicide bombers who attacked his grave on the anniversary of his death came from Khorasan, which is, like Baluchistan to its south, a large border region that no state has been able to control.

More broadly, Iran's theocratic Shia regime has often found itself at odds with Sunni Pakistan. Shia minorities in Pakistan have faced attacks from Sunni militants for decades, with thousands killed in the past 30 years. Iran has long tried to export its Shia ideology to border countries and elsewhere in the vicinity, which is hardly appreciated by most Pakistanis. The close relationships that Pakistan maintains with Persian Gulf monarchies, especially with Saudi Arabia, also fuel Iranian hostility. The nuclear competition in the region has been driven in part by Saudi investment in Pakistani nuclear-weapons projects and by Saudi hopes of obtaining a nuclear arsenal of its own.

On the Pakistani side, these existing patterns of conflict are worsened by Iranian ties with India. The Foreign Ministry of India issued a statement that supported the Iranian attacks. Meanwhile one of the few potential bright spots in the Pakistani economy, the Chinese-built megaport at Gwadar, is within Pakistani Baluchistan and acutely vulnerable.

Proxy warfare is a sometimes underestimated factor in economic stagnation. Inward investment to Pakistan has plummeted since its 2007 high. Iran’s inward FDI peaked earlier, in 2002. Both are now at 1970 levels. But Iran is significantly wealthier in per capita terms, due mainly to oil rents—about 20% of GDP in 2020, compared to only nominal amounts in Pakistan. This seems to have the effect of making Iranian strategists more willing to spend on foreign adventures. Investors need to take current and likely patterns of proxy warfare into account. This unfortunate reality became clear to the Chinese in Gwadar and has become clear to the world as Iran’s Houthi proxies harry shipping in the Red Sea.