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State ownership
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State ownership, also called public ownership or government ownership, is the ownership of an industry, asset, property, or enterprise by the national government of a country or state, or a public body representing a community, as opposed to an individual or private party.[1] Public ownership specifically refers to industries selling goods and services to consumers and differs from public goods and government services financed out of a government's general budget.[2] Public ownership can take place at the national, regional, local, or municipal levels of government; or can refer to non-governmental public ownership vested in autonomous public enterprises. Public ownership is one of the three major forms of property ownership, differentiated from private, collective/cooperative, and common ownership.[3]
In market-based economies, state-owned assets are often managed and operated as joint-stock corporations with a government owning all or a controlling stake of the company's shares. This form is often referred to as a state-owned enterprise. A state-owned enterprise might variously operate as a Nonprofit corporation, as it may not be required to generate a profit; as a commercial enterprise in competitive sectors; or as a natural monopoly. Governments may also use the profitable entities they own to support the general budget. The creation of a state-owned enterprise from other forms of public property is called corporatization.
In Soviet-type economies, state property was the dominant form of industry as property. The state held a monopoly on land and natural resources, and enterprises operated under the legal framework of a nominally planned economy, and thus according to different criteria than enterprises in market and mixed economies.
Nationalization is a process of transferring private or municipal assets to a central government or state entity. Municipalization is the process of transferring private or state assets to a municipal government.
State-owned enterprise
[edit]A state-owned enterprise is a commercial enterprise owned by a government entity in a capitalist market or mixed economy. Reasons for state ownership of commercial enterprises are that the enterprise in question is a natural monopoly or because the government is promoting economic development and industrialization. State-owned enterprises may or may not be expected to operate in a broadly commercial manner and may or may not have monopolies in their areas of activity. The transformation of public entities and government agencies into government-owned corporations is sometimes a precursor to privatization.
State capitalist economies are capitalist market economies that have high degrees of government-owned businesses.
Relation to socialism
[edit]
Public ownership of the means of production is a subset of social ownership, which is the defining characteristic of a socialist economy. However, state ownership and nationalization by themselves are not socialist, as they can exist under a wide variety of different political and economic systems for a variety of different reasons. State ownership by itself does not imply social ownership where income rights belong to society as a whole. As such, state ownership is only one possible expression of public ownership, which itself is one variation of the broader concept of social ownership.[4][5]
In the context of socialism, public ownership implies that the surplus product generated by publicly owned assets accrues to all of society in the form of a social dividend, as opposed to a distinct class of private capital owners. There is a wide variety of organizational forms for state-run industry, ranging from specialized technocratic management to direct workers' self-management. In traditional conceptions of non-market socialism, public ownership is a tool to consolidate the means of production as a precursor to the establishment of economic planning for the allocation of resources between organizations, as required by government or by the state.
State ownership is advocated as a form of social ownership for practical concerns, with the state being seen as the obvious candidate for owning and operating the means of production. Proponents assume that the state, as the representative of the public interest, would manage resources and production for the benefit of the public.[6] As a form of social ownership, state ownership may be contrasted with cooperatives and common ownership. Socialist theories and political ideologies that favor state ownership of the means of production may be labelled state socialism.
State ownership was recognized by Friedrich Engels in Socialism: Utopian and Scientific as, by itself, not doing away with capitalism, including the process of capital accumulation and structure of wage labor. Engels argued that state ownership of commercial industry would represent the final stage of capitalism, consisting of ownership and management of large-scale production and manufacture by the state.[7]
Within the United Kingdom, public ownership is mostly associated with the Labour Party (a centre-left democratic socialist party), specifically due to the creation of Clause IV of the "Labour Party Manifesto" in 1918. "Clause IV" was written by Fabian Society member Sidney Webb.
Public property
[edit]There is a distinction to be made between state ownership and public property. The former may refer to assets operated by a specific state institution or branch of government, used exclusively by that branch, such as a research laboratory. The latter refers to assets and resources owned by the population of a state which are mostly available to the entire public for use, such as a public park (see public space).
Criticism
[edit]In neoclassical economic theory, the desirability of state ownership has been studied using contract theory. According to the property rights approach based on incomplete contracting (developed by Oliver Hart and his co-authors), ownership matters because it determines what happens in contingencies that were not considered in prevailing contracts.[8]
The work by Hart, Shleifer and Vishny (1997) is the leading application of the property rights approach to the question whether state ownership or private ownership is desirable.[9] In their model, the government and a private firm can invest to improve the quality of a public good and to reduce its production costs. It turns out that private ownership results in strong incentives to reduce costs, but it may also lead to poor quality. Hence, depending on the available investment technologies, there are situations in which state ownership is better. The Hart-Shleifer-Vishny theory has been extended in many directions. For instance, some authors have also considered mixed forms of private ownership and state ownership.[10] In the Hart-Shleifer-Vishny model it is assumed that all parties have the same information, while Schmitz (2023) has studied an extension of their analysis allowing for asymmetric information.[11] Moreover, the Hart-Shleifer-Vishny model assumes that the private party derives no utility from provision of the public good. Besley and Ghatak (2001) have shown that if the private party (a non-governmental organization) cares about the public good, then the party with the larger valuation of the public good should always be the owner, regardless of the parties' investment technologies.[12]
More recently, some authors have shown that the investment technology also matters in the Besley-Ghatak framework if an investing party is indispensable[13] or if there are bargaining frictions between the government and the private party.[14]
See also
[edit]References
[edit]- ^ "Public Ownership". Oxford Dictionaries. Archived from the original on January 26, 2018. Retrieved January 25, 2018.
Ownership by the government of an asset, corporation, or industry.
- ^ Tupper, Allan (February 7, 2006). "Public Ownership". The Canadian Encyclopedia. Historica Canada. Retrieved January 25, 2018.
public ownership generally refers to enterprises, wholly or partially government owned, which sell goods and services at a price according to use. According to this definition, government-owned railways, airlines, and utilities are examples of public ownership, but hospitals, highways and public schools are not.
- ^ Gregory, Paul R.; Stuart, Robert C. (2003). Comparing Economic Systems in the Twenty-First Century. Boston: Houghton Mifflin. p. 27. ISBN 0-618-26181-8.
There are three broad forms of property ownership-private, public, and collective (cooperative).
- ^ Hastings, Adrian; Mason, Alistair; Pyper, Hugh (December 21, 2000). The Oxford Companion to Christian Thought. Oxford University Press. p. 677. ISBN 978-0198600244.
Socialists have always recognized that there are many possible forms of social ownership of which co-operative ownership is one. Nationalization in itself has nothing particularly to do with socialism and has existed under non-socialist and anti-socialist regimes. Kautsky in 1891 pointed out that a 'co-operative commonwealth' could not be the result of the 'general nationalization of all industries' unless there was a change in 'the character of the state'.
- ^ Ellman, Michael (1989). Socialist Planning. Cambridge University Press. p. 327. ISBN 0-521-35866-3.
State ownership of the means of production is not necessarily social ownership and state ownership can hinder efficiency.
- ^ Arnold, Scott (1994). The Philosophy and Economics of Market Socialism: A Critical Study. Oxford University Press. pp. 44. ISBN 978-0195088274.
For a variety of philosophical and practical reasons touched on in chapter 1, the most obvious candidate in modern societies for that role has been the state. In the past, this led socialists to favor nationalization as the primary way of socializing the means of production…The idea is that just as private ownership serves private interests, public or state ownership would serve the public interest.
- ^ Frederick Engels. "Socialism: Utopian and Scientific (Chpt. 3)". Marxists.org. Retrieved 2014-01-08.
- ^ Hart, Oliver (1995). "Firms, Contracts, and Financial Structure". Oxford University Press.
- ^ Hart, Oliver; Shleifer, Andrei; Vishny, Robert W. (1997). "The Proper Scope of Government: Theory and an Application to Prisons" (PDF). The Quarterly Journal of Economics. 112 (4): 1127–1161. doi:10.1162/003355300555448. ISSN 0033-5533. S2CID 16270301.
- ^ Hoppe, Eva I.; Schmitz, Patrick W. (2010). "Public versus private ownership: Quantity contracts and the allocation of investment tasks". Journal of Public Economics. 94 (3–4): 258–268. doi:10.1016/j.jpubeco.2009.11.009.
- ^ Schmitz, Patrick W. (2023). "The proper scope of government reconsidered: Asymmetric information and incentive contracts" (PDF). European Economic Review. 157 104511. doi:10.1016/j.euroecorev.2023.104511. ISSN 0014-2921. S2CID 259487043.
- ^ Besley, Timothy; Ghatak, Maitreesh (2001). "Government versus Private Ownership of Public Goods". The Quarterly Journal of Economics. 116 (4): 1343–1372. CiteSeerX 10.1.1.584.6739. doi:10.1162/003355301753265598. JSTOR 2696461. S2CID 39187118.
- ^ Halonen-Akatwijuka, Maija (2012). "Nature of human capital, technology and ownership of public goods". Journal of Public Economics. Fiscal Federalism. 96 (11–12): 939–945. CiteSeerX 10.1.1.173.3797. doi:10.1016/j.jpubeco.2012.07.005. S2CID 154075467.
- ^ Schmitz, Patrick W. (2015). "Government versus private ownership of public goods: The role of bargaining frictions". Journal of Public Economics. 132: 23–31. doi:10.1016/j.jpubeco.2015.09.009.
Further reading
[edit]- Jewellord Nem Singh; Geoffrey C. Chen (2018), State-owned enterprises and the political economy of state–state relations in the developing world, Third World Quarterly, 39:6, 1077–1097, doi:10.1080/01436597.2017.1333888
State ownership
View on GrokipediaDefinition and Forms
Core Definition and Legal Basis
State ownership refers to the direct or indirect possession, control, and management of assets, enterprises, resources, or property by a government entity on behalf of the sovereign state, as opposed to private individuals or corporations.[2] This encompasses a range of holdings, from full government equity in commercial entities to public domain lands and natural resources, where the state exercises ultimate decision-making authority over use, disposition, and revenue allocation.[11] Legally, state ownership derives from the foundational principle of sovereignty, which vests governments with inherent powers to hold title to property under public law, independent of transient officeholders, to serve collective interests such as national security, infrastructure provision, or economic stabilization.[12] In practice, this basis manifests through constitutional clauses authorizing state intervention in key sectors—such as natural resources or utilities—or enabling eminent domain for compulsory acquisition, as codified in statutes like the U.S. Fifth Amendment's takings clause or equivalent provisions in civil law systems.[13] Ownership structures often require dedicated legal frameworks to delineate governance, accountability, and separation from political interference, with entities registered as corporations or trusts to limit fiscal risks to the public treasury.[14] While international law recognizes states' rights to own property extraterritorially under treaties like the UN Charter's affirmation of sovereign equality, domestic implementation varies: common law jurisdictions emphasize statutory vesting of title in the Crown or treasury, whereas civil law systems rely on administrative codes treating state assets as inalienable public patrimony unless legislated otherwise.[15] Empirical data from global surveys indicate that as of 2023, state ownership predominates in sectors like energy and transport in over 80% of surveyed economies, underscoring its entrenched legal legitimacy despite debates over efficiency.[16]Types of State-Owned Assets and Enterprises
State-owned assets comprise government-held properties and resources, including tangible items such as land, buildings, infrastructure, and natural resources like minerals and forests, as well as intangible assets including intellectual property and financial holdings.[17] These assets serve purposes ranging from revenue generation to strategic control, with governments often retaining ownership to address market failures or national security needs. Enterprises, in contrast, are operational entities structured to produce goods or services, typically organized as legal corporations to pursue commercial objectives under state ownership.[18] State-owned enterprises (SOEs) are classified by ownership structure, operational mandate, and sector. Fully state-owned SOEs operate without private shareholders, while majority-owned variants include minority private stakes, often in listed companies where the state holds controlling interest.[19] In OECD countries, SOEs predominantly cluster in network-based sectors requiring high capital investment and exhibiting natural monopoly characteristics, such as energy (power generation and distribution), transportation (railways and ports), and telecommunications, accounting for approximately half of total SOE value.[20] Other significant categories include financial services, where state banks manage deposits and lending, and manufacturing, though the latter shows greater variation across jurisdictions due to competitive pressures.[21] A distinct subtype involves strategic or resource-based assets, such as state-controlled mining operations and petroleum companies, which extract and manage natural resources to secure supply and fiscal revenues; for instance, national oil companies like Saudi Aramco (fully state-owned until partial listing in 2019) exemplify this, controlling vast reserves critical to export economies.[11] Sovereign wealth funds represent another enterprise form, functioning as investment vehicles to allocate surplus government revenues—often from commodities—into diverse portfolios including stocks, bonds, and real estate; Norway's Government Pension Fund Global, established in 1990 and valued at over $1.5 trillion as of 2023, invests oil windfalls internationally to stabilize fiscal policy.[16] Development finance institutions, a further category, provide funding for infrastructure and industrial projects aligned with national priorities, blending commercial operations with policy objectives; examples include Brazil's BNDES, which disbursed $300 billion in loans from 2008 to 2018, primarily to heavy industry and exports.[16] Public non-commercial assets, such as government-held land and public domain properties, differ from enterprises by lacking profit motives, instead supporting public goods like defense installations or conservation areas, though they may generate incidental revenues through leasing.[17] Across these types, empirical data indicate SOEs comprised 126 of the world's 500 largest companies by revenue in 2023, underscoring their scale despite varying efficiency outcomes tied to governance.[22]Historical Development
Pre-Modern and Early Industrial Era
In ancient Egypt, the pharaoh exercised ultimate ownership over arable land, which was administered through temple estates and state-managed agricultural centers responsible for production, irrigation, and labor allocation, with portions granted to officials but subject to royal reclamation or oversight.[23] Similarly, in Mesopotamia during the late Uruk period around the 4th millennium BCE, state-controlled textile workshops exemplified early centralized production facilities operated by palace administrations to support administrative and redistributive needs.[24] The Roman Empire, particularly from the 4th century CE onward, developed state-owned fabricae—centralized factories—for manufacturing arms, armor, and military equipment, shifting from reliance on private contractors to direct imperial control amid logistical demands of large-scale warfare.[25] Medieval European feudal systems positioned the monarch as the paramount lord, with all land theoretically comprising crown property delegated through fiefs to vassals in exchange for military service and loyalty, while direct royal demesnes generated revenue via rents and seigneurial rights without intermediary grants.[26] This hierarchical structure preserved sovereign ultimate title, limiting alienation of land without royal consent and distinguishing it from private ownership, though practical control often resided with nobles or the church on granted estates.[27] Under mercantilist policies from the 16th to 18th centuries, European states imposed monopolies on key commodities like salt and tobacco—such as France's régie system for tobacco production and distribution—directly operating enterprises to maximize fiscal extraction and regulate trade flows.[28] During the early industrial era, state ownership expanded selectively for strategic infrastructure where private investment lagged, including U.S. examples like Georgia's state-constructed Western and Atlantic Railroad in the 1830s and 1840s to link ports and interiors for commerce and defense.[29] In continental Europe, Prussian authorities initiated state-owned railways from 1838, funding and operating lines like the Berlin-Potsdam route to integrate markets and military mobility, contrasting with Britain's predominantly private networks subsidized via land grants and guarantees.[30] Persistent state enterprises included expanded royal arsenals and dockyards, such as Britain's Woolwich Arsenal established in 1716 and modernized for mechanized production by the early 19th century, prioritizing national security over commercial efficiency.[31]20th Century Nationalizations and Expansions
The Bolshevik Revolution in October 1917 initiated widespread nationalization in Russia, beginning with the Decree on Land that expropriated private estates and redistributed them to peasants, followed by the nationalization of banks in December 1917 and major industries under War Communism policies from 1918 to 1921.[32] By May 1918, over 300 enterprises had been seized or nationalized, encompassing key sectors like banking, transport, and manufacturing, with the Supreme Economic Council overseeing the process to centralize control amid civil war and economic collapse.[33] This expanded state ownership to nearly the entire economy by the early 1920s, forming the basis for Soviet planned production, though it contributed to output declines of up to 80% in some industries due to disrupted incentives and management.[34] In the interwar period, resource nationalism drove selective nationalizations in developing economies, exemplified by Mexico's expropriation of foreign oil assets on March 18, 1938, under President Lázaro Cárdenas, which transferred control of reserves and facilities from U.S. and British firms like Standard Oil to the state-owned Petróleos Mexicanos (Pemex).[35] This act seized approximately 18% of global oil production at the time, justified by labor disputes and sovereignty claims, but prompted international boycotts and delayed compensation until 1944, highlighting tensions between state assertions and foreign investment risks.[36] In Europe, Nazi Germany pursued limited nationalizations, such as banks and select industries like steel, but emphasized state direction of private firms over outright ownership, with Hitler explicitly rejecting broad socialization to maintain industrial efficiency for rearmament.[37] Post-World War II reconstruction accelerated nationalizations in Western Europe, particularly under socialist-leaning governments seeking to secure "commanding heights" of the economy. In the United Kingdom, the Labour government from 1945 to 1951 nationalized the Bank of England in 1946, coal mining (affecting 1,500 pits and 700,000 workers) via the Coal Industry Nationalisation Act, railways in 1947, and steel production in 1949, transferring assets worth billions to public corporations amid wartime damage and strikes.[38] Similarly, France's provisional government post-liberation nationalized Renault in 1945 for collaboration suspicions, followed by electricity, gas, coal, and major banks in 1945-1946, creating entities like Électricité de France to modernize infrastructure and allocate resources under state planning.[39] These measures expanded state ownership to over 20% of industrial output in both nations by the 1950s, often rationalized by efficiency gains from coordination but later critiqued for bureaucratic rigidities that hampered innovation.[40] In Eastern Europe, Soviet influence post-1945 imposed comprehensive nationalizations, mirroring the USSR model by seizing industries, banks, and land in countries like Poland and Czechoslovakia, where private enterprise shares dropped to under 10% by 1950. Developing nations followed suit in mid-century decolonization waves, with examples including Iran's oil nationalization in 1951 and Egypt's Suez Canal takeover in 1956, asserting control over strategic assets to fund development and reduce foreign dominance, though often incurring economic isolation and inefficiencies from politicized management.[41] By the 1970s, such expansions had elevated state-owned enterprises to dominate economies in over 50 countries, controlling up to 30-40% of GDP in socialist states, yet empirical reviews indicate persistent underperformance relative to private counterparts due to misaligned incentives and corruption risks.[42]Post-1980s Privatizations and Reversals
In the 1980s and 1990s, a worldwide wave of privatizations transferred ownership of state-owned enterprises (SOEs) to private investors, driven by fiscal pressures, ideological shifts toward market liberalization, and evidence of SOE inefficiencies. Governments sold stakes in over 100 SOEs globally, raising approximately $1 trillion by the early 2000s through methods such as public share offerings and auctions.[43] In 1990 alone, divestitures totaled $25 billion across continents, with revenues from such sales surging internationally from the late 1980s onward.[44][45] The United Kingdom led early efforts under Prime Minister Margaret Thatcher, whose Conservative governments from 1979 onward divested major utilities and transport firms to curb subsidies, foster competition, and expand public shareholding. Key transactions included British Telecom in 1984, which raised £3.9 billion and marked the largest privatization to date; British Gas in 1986; and British Airways, fully privatized by 1987.[46][47] These sales generated £2 billion in 1989–1990 and reduced the state's economic footprint from post-World War II nationalizations.[48] Similar reforms spread to other developed economies, such as Japan's partial privatization of Japan National Railways in 1987 and Nippon Telegraph and Telephone in 1985, alongside advocacy from institutions like the World Bank for SOE divestitures in developing nations to access investment capital.[49][50] The dissolution of the Soviet Union accelerated privatizations in transition economies. In Russia, a voucher-based program from 1992 to 1994 distributed shares in over 15,000 SOEs to citizens, aiming for rapid de-statization amid hyperinflation and output collapse.[51] Eastern European countries like Poland and Czechoslovakia employed mass privatization alongside case-by-case sales, privatizing thousands of firms by the mid-1990s to integrate into market systems, though outcomes varied due to weak institutions and insider deals.[52] In Latin America, Chile under Pinochet had privatized extensively by the 1980s, followed by Mexico's sales of telecom and banking assets in the 1990s, often tied to debt relief conditions from the IMF.[47] Reversals emerged sporadically from the 2000s, typically in regulated utilities where private management faced public backlash over pricing, service quality, or crises, though such renationalizations remained exceptions to the privatization trend. In Germany, between 2007 and 2015, over 234 municipalities terminated private concessions for local electricity networks, remunicipalizing them to regain control amid dissatisfaction with profit-driven operations.[53] Political cycles also prompted partial rollbacks; for instance, Bolivia's 2006 hydrocarbon nationalization under President Evo Morales reclaimed fields from foreign firms partially privatized in the 1990s, citing resource sovereignty and revenue shortfalls. Empirical assessments indicate these reversals often stemmed from regulatory failures or ideological reversals rather than inherent privatization defects, with privatization-nationalization cycles observed historically across sectors like transport and energy.[54] In the UK, partial interventions occurred, such as temporary rail nationalizations post-privatization crashes, but full-scale reversals were limited.[55]Theoretical Foundations
Economic Rationale and First-Principles Analysis
State ownership is often justified on economic grounds as a response to market failures, such as the underprovision of public goods, externalities, or natural monopolies where private firms might exploit market power or fail to invest adequately in infrastructure. In sectors like utilities or transportation, proponents argue that state intervention ensures universal access and long-term stability, preventing profit-driven underinvestment or price gouging that could harm consumers.[56] For developing economies, state ownership in strategic industries is rationalized as a tool for industrialization and technology transfer, where private capital may be scarce or risk-averse.[57] From first principles, however, the core issue lies in the nature of ownership and its impact on human action under scarcity. Economic agents respond to incentives shaped by property rights: private owners, facing personal gains or losses, allocate resources toward uses that maximize value as signaled by voluntary exchanges and prices. State ownership disrupts this by separating control from residual claimancy; managers and officials do not bear the full costs of errors, leading to moral hazard and reduced vigilance against waste.[58] This principal-agent misalignment is exacerbated in state-owned enterprises (SOEs), where political principals impose non-commercial objectives—like employment preservation or regional favoritism—overriding profit signals, unlike private firms disciplined by competition and bankruptcy threats.[59] A fundamental causal barrier is the impossibility of rational economic calculation without market-generated prices rooted in private ownership. As articulated by Ludwig von Mises in 1920, SOEs lack the price system for capital goods that emerges from rivalrous bidding, rendering it impossible to assess relative scarcities or opportunity costs for complex production processes.[58] Planners must resort to arbitrary valuations or imitate market prices, but these substitutes fail to convey dispersed, tacit knowledge of local conditions and preferences, as emphasized in related critiques of centralized direction. Public choice analysis further reveals that self-interested bureaucrats and politicians, unconstrained by market feedback, expand enterprises to maximize budgets or votes rather than efficiency, fostering rent-seeking and overcapacity.[60] In essence, while state ownership may address specific coordination gaps in theory, first-principles reasoning highlights systemic incentive distortions and informational deficits that typically yield inferior resource allocation compared to decentralized private ordering. Empirical patterns of SOE underperformance—such as lower productivity and higher debt burdens—align with these theoretical predictions, though isolated cases of discipline via quasi-market reforms suggest partial mitigations are possible under strict conditions.[61][6]Ideological Associations and Debates
State ownership is fundamentally associated with socialist ideologies, which advocate for collective control over the means of production to prioritize social welfare over individual profit. In socialism, the state often serves as the mechanism for public ownership, directing resources toward equitable distribution and preventing private monopolies, as articulated in foundational economic comparisons distinguishing it from capitalism's reliance on private enterprise.[62] Marxist theory specifically frames state ownership as a transitional tool under proletarian dictatorship, enabling the expropriation of bourgeois property to dismantle class exploitation and pave the way for communism, though historical implementations have perpetuated state control rather than its predicted obsolescence.[63] In opposition, liberal and capitalist ideologies reject extensive state ownership, viewing it as incompatible with individual liberty and efficient markets; private property rights are seen as essential for incentivizing innovation and cost containment through competitive pressures.[7] Classical liberalism posits a minimal state role limited to enforcing contracts and protecting rights, arguing that state intervention distorts price signals and fosters dependency, whereas Marxism critiques the liberal state as a mere executive committee for capitalist interests.[64] Debates over state ownership hinge on its purported ability to deliver public goods without private sector efficiencies. Socialist advocates contend it mitigates inequality by subordinating profit to societal needs, as evidenced in theoretical defenses of state firms handling strategic sectors like utilities or defense.[65] Critics, grounded in public choice theory, highlight chronic inefficiencies from political capture, where SOEs face soft budget constraints and prioritize ideological goals over viability, leading to resource misallocation.[66] Empirical analyses reinforce this, showing state ownership correlates with lower firm performance, particularly under left-leaning governance that expands SOEs for redistributive aims, though relative efficiency may hold in monopolistic or high-social-function domains.[67][68][69] Certain authoritarian systems, such as fascism, have incorporated state oversight of private firms via corporatist structures to achieve autarky, blending capitalist elements with dirigiste control distinct from socialist collectivization.[70] These ideological tensions persist in modern policy, with proponents citing SOEs' role in countering market failures in developing economies, while detractors warn of entrenched bureaucracies stifling growth, as observed in cross-country growth regressions linking high SOE prevalence to slower GDP expansion.[71]Operational Mechanisms
Governance Structures in SOEs
State-owned enterprises (SOEs) are typically governed through a hierarchical structure where the state acts as the ultimate owner, exercising control via designated ownership entities such as ministries, state holding companies, or centralized agencies. In centralized models, a single government body—often a line ministry or sovereign wealth fund—holds direct supervisory authority, setting strategic objectives and appointing key personnel to align operations with national policy goals. Decentralized models, by contrast, distribute oversight across multiple entities, such as sector-specific regulators or regional authorities, which can fragment accountability but allow for tailored sector expertise. This dual ownership typology influences decision-making efficiency, with centralized structures enabling quicker policy alignment but risking concentrated political capture, as evidenced in surveys of over 40 jurisdictions where fragmented ownership correlated with slower reform implementation.[72][19] Boards of directors in SOEs form the core supervisory mechanism, responsible for strategic oversight, risk management, and executive appointments, yet their composition frequently deviates from private-sector norms due to state influence. Directors are commonly nominated and appointed by the ownership entity, often prioritizing alignment with government priorities over independent expertise; for instance, in many systems, up to 50% of board seats may be reserved for state representatives or political nominees, as seen in national practices reviewed across OECD adherents. The CEO and senior management report to the board, but ultimate accountability loops back to the state owner through performance contracts or annual reporting, which emphasize non-commercial mandates like employment preservation or regional development alongside profitability. Empirical analyses indicate that such politically influenced boards can undermine financial performance, with studies of Indian SOEs finding that higher proportions of independent directors paradoxically reduced returns due to conflicts with state directives, highlighting agency problems where managers prioritize bureaucratic incentives over shareholder value.[73][74] To counterbalance inherent vulnerabilities to undue influence, international standards advocate separating ownership functions from regulatory roles and empowering boards with autonomy in day-to-day operations. The OECD Guidelines on Corporate Governance of State-Owned Enterprises, revised in 2024, recommend transparent nomination processes based on merit, diversity of skills, and fixed-term appointments to professionalize boards, drawing from experiences in 59 jurisdictions where such reforms improved disclosure and reduced patronage risks. Despite these benchmarks, political interference persists, particularly in systems with ruling party oversight—such as China's integration of Communist Party committees into SOE governance—which reconciles economic targets with ideological objectives but often subordinates commercial viability to state welfare maximization, as documented in comparative governance reviews. Safeguarding measures, including anti-corruption protocols and external audits, are critical, yet enforcement varies, with World Bank assessments noting that without robust legal frameworks, SOEs remain conduits for related-party transactions tied to political turnover.[75][76][77][78]Funding, Regulation, and Incentives
State-owned enterprises (SOEs) are primarily funded through government allocations from tax revenues, subsidies, grants, and transfers, which often constitute a significant portion of national budgets in countries with extensive state ownership. For instance, in many emerging economies, SOEs receive direct fiscal injections to cover operational losses or pursue policy objectives, with empirical data indicating that subsidies to SOEs averaged 1-2% of GDP in select OECD countries between 2010 and 2019. [10] These mechanisms enable SOEs to access capital without the stringent profitability requirements imposed on private firms, but they foster dependency, as evidenced by Chinese SOEs receiving approximately $300 billion in subsidies from 1985 to 2005 to support industrial expansion. [79] Additionally, SOEs often secure financing via state-controlled banks offering concessional loans or bonds backed by sovereign guarantees, which reduce borrowing costs but expose taxpayers to contingent liabilities. [80] A core feature of SOE funding is the "soft budget constraint," a concept articulated by economist János Kornai in 1986, whereby enterprises anticipate and receive bailouts from the state for poor performance, diminishing the discipline of financial accountability. [81] This leads to overinvestment in unprofitable projects and inefficient resource allocation, as funding sources—such as subsidies or tax exemptions—prioritize political or social goals over commercial viability, contrasting with private firms' reliance on market-tested returns. Empirical studies confirm that SOEs exhibit higher debt levels and lower profitability compared to private counterparts, with subsidies negatively impacting long-term financial health by encouraging riskier operations under the expectation of state support. [3] [82] Regulation of SOEs typically involves state oversight through dedicated ministries or ownership entities, which enforce compliance with national policies rather than purely market-driven standards, often resulting in exemptions from antitrust scrutiny or competitive bidding requirements. OECD guidelines, updated in 2023, recommend frameworks ensuring a level playing field by subjecting SOEs to the same regulatory burdens as private entities, including transparent procurement and disclosure rules, to mitigate distortions in competitive markets. [83] However, in practice, regulatory capture arises when SOEs influence policy to their advantage, such as through privileged access to resources or lenient environmental and labor standards, as observed in sectors like energy where state firms dominate. World Bank analyses highlight that inadequate regulation exacerbates fiscal risks, with SOEs in developing countries frequently operating under hybrid models blending commercial mandates with public service obligations, leading to inconsistent enforcement. [66] Incentives within SOEs diverge markedly from those in private firms, where owner monitoring aligns management with profit maximization through equity stakes and market pressures. State ownership dilutes such incentives, as political appointees or bureaucrats prioritize employment preservation, regional development, or ideological objectives over efficiency, with studies showing SOEs underperform in profitability metrics due to weaker performance-based remuneration and reduced fear of bankruptcy. [72] [3] For example, SOE managers may pursue expansive investments subsidized by the state, echoing the soft budget dynamic, while private firms face shareholder discipline that curbs overexpansion. Empirical evidence from cross-country data indicates SOEs benefit from non-market advantages like exclusive contracts and low-interest loans, but these distort incentives toward rent-seeking rather than innovation or cost control, contributing to systemic inefficiencies. [84] This misalignment often manifests in higher operational costs and lower productivity, as incentives reward compliance with government directives over competitive adaptation. [85]Empirical Performance
Profitability and Efficiency Comparisons
Empirical research spanning multiple decades and countries demonstrates that state-owned enterprises (SOEs) generally underperform privately owned firms in measures of profitability and efficiency. A foundational cross-country study by Boardman and Vining (1989) compared the performance of 500 large industrial enterprises across 40 countries, finding that fully private firms achieved superior outcomes in profitability, efficiency, and value added compared to SOEs and mixed-ownership entities, with SOEs scoring lowest on a composite performance index.[86] This disparity arises from structural incentives, as private firms prioritize profit maximization while SOEs often pursue non-commercial objectives influenced by political directives.[86] Subsequent analyses reinforce these findings. Dewenter and Malatesta (2001) examined matched samples of SOEs and private firms in nine countries, revealing that SOEs exhibited lower profitability ratios—such as returns on sales averaging 4.5% versus 7.2% for private firms—along with higher leverage (debt-to-equity ratios 20-30% greater) and labor intensity, indicating inefficient resource allocation.[87] Similarly, an Asian Development Bank study (2019) of firms in developing economies found SOEs to be less profitable overall, with private ownership switches leading to profitability gains of up to 15-20% post-transition, attributed to reduced subsidies and enhanced market discipline.[88] Privatization outcomes provide further evidence of efficiency gaps. Megginson and Netter's (2001) comprehensive survey of over 100 empirical studies on privatization showed consistent post-privatization improvements, including profitability increases averaging 10-20 percentage points in return on sales and significant rises in total factor productivity (up to 15%), across diverse sectors and regions from 1961 to 2000.[89] These effects persisted in later reviews, such as Megginson's 2025 analysis, which documented sustained gains in capital investment (rising from 11.7% to 16.9% of sales) and operating efficiency following divestitures.[90]| Metric | SOEs (Typical Range) | Private Firms (Typical Range) | Source |
|---|---|---|---|
| Return on Assets | 2-5% | 5-10% | Dewenter & Malatesta (2001)[87]; ADB (2019)[88] |
| Return on Sales | 3-6% | 6-12% | Boardman & Vining (1989)[86]; Emerald Insight (2021)[91] |
| Total Factor Productivity Growth (Post-Privatization) | N/A (Baseline) | +10-15% | Megginson & Netter (2001)[89] |
Broader Economic Impacts
State ownership of enterprises frequently imposes fiscal burdens on governments through direct subsidies, implicit guarantees, and bailouts for underperforming entities, which can elevate public debt levels and crowd out productive public spending. For instance, in many developing economies, state-owned enterprises (SOEs) account for significant fiscal transfers, with global estimates indicating that SOE losses contributed to up to 1-2% of GDP in some countries during periods of financial distress, exacerbating budget deficits and increasing taxpayer liabilities.[10] This dynamic is evident in cases where governments absorb SOE debts to prevent systemic failures, as seen in European nations post-2008 financial crisis, where such interventions strained sovereign balance sheets and limited infrastructure investments.[71] SOEs often distort resource allocation by crowding out private investment, as they benefit from preferential access to credit, land, and regulatory leniency unavailable to private firms, leading to reduced capital formation in the non-state sector. Empirical analyses across cities with high SOE presence reveal slower growth in private firms' capital accumulation and overall productivity, with non-SOEs experiencing up to 10-15% lower expansion rates in such environments due to competitive distortions.[93] World Bank assessments of 76,000 firms in 91 countries highlight that SOEs in competitive sectors—comprising over 20% of such markets in low-income nations—hinder private sector dynamism by monopolizing opportunities, resulting in lower aggregate investment-to-GDP ratios compared to economies with minimal state intervention.[94] On macroeconomic growth, cross-country studies consistently link higher SOE shares to subdued GDP expansion, with increases in state ownership correlating to 0.5-1% annual reductions in growth rates through diminished efficiency and innovation incentives. In Europe from 2010-2016, elevated SOE prevalence was associated with stagnant productivity gains, as political objectives supplanted profit maximization, amplifying opportunity costs in forgone private-led development.[71] While resource-rich exceptions like Norway demonstrate fiscal surpluses from SOEs channeling revenues into sovereign funds, broader evidence from IMF and World Bank data underscores that such successes are rare and sector-specific, with pervasive inefficiencies in manufacturing and services dragging down overall economic vitality in high-SOE economies.[95][10]Case Studies
Notable Successes with Qualifications
Norway's Equinor ASA, with the state holding a 67% stake since its founding as Statoil in 1972, has achieved sustained profitability through effective management of North Sea oil and gas reserves, contributing significantly to the national economy via dividends and taxes exceeding NOK 1 trillion cumulatively by 2023.[96] This success stems from a professionalized ownership model that emphasizes long-term value over short-term political interference, enabling Equinor to operate competitively on global markets while investing in renewables.[97] However, its performance relies heavily on Norway's abundant hydrocarbon endowments and a small, homogeneous population of about 5.5 million, limiting generalizability to resource-poor or larger economies where similar state interventions have faltered due to bureaucratic inertia or corruption.[98] Singapore's Temasek Holdings, established in 1974 as a state investment vehicle, has delivered a compounded annual return of around 13% over five decades, growing its net portfolio to S$434 billion as of March 2025, with 66% exposure to developed economies including strong performers in technology and finance.[99] This track record arises from arm's-length governance, merit-based appointments, and a focus on commercial viability rather than social mandates, allowing subsidiaries like Singapore Airlines to compete internationally.[100] Qualifications include Singapore's exceptional institutional framework—characterized by low corruption, efficient bureaucracy, and a city-state scale of 5.9 million people—which mitigates typical SOE pitfalls like political capture, rendering the model challenging to replicate in contexts with weaker rule of law or entrenched patronage networks.[101] Saudi Aramco, fully state-owned until partial privatization in 2019, reported net profits of $106.2 billion in 2024 and a record $161 billion in 2023, driven by low extraction costs averaging under $3 per barrel from vast reserves exceeding 260 billion barrels.[102][103] Its profitability underscores the advantages of state control over natural monopolies in extractive industries, funding Saudi Arabia's Vision 2030 diversification with massive upstream cash flows. Yet, this owes primarily to geological windfalls rather than operational innovation or efficiency in competitive sectors, as evidenced by vulnerability to global price volatility—profits dipped 12% in 2024 amid lower oil benchmarks—and limited diversification beyond hydrocarbons despite state directives.[104][105] In strategic sectors like infrastructure and heavy industry, China's state-owned enterprises have facilitated rapid scaling, such as building the world's largest high-speed rail network spanning over 45,000 km by 2023, leveraging centralized coordination and subsidized financing unavailable to private competitors.[106] These achievements support national priorities in areas like nuclear power and telecommunications, where SOEs like China National Nuclear Corporation have advanced capacity to 55 reactors operational by 2024.[107] Nonetheless, such successes are qualified by non-market protections, including market barriers and fiscal transfers totaling trillions of yuan annually, which distort resource allocation and yield lower returns on assets—averaging 3-5% for SOEs versus 10-15% for private firms—highlighting dependency on state favoritism over intrinsic competitiveness.[108][109]Prominent Failures and Lessons
The centrally planned economy of the Soviet Union, characterized by comprehensive state ownership of production, collapsed in 1991 amid chronic inefficiencies, including resource misallocation and technological stagnation, as central planners lacked price signals to guide decisions.[110] Output growth stagnated from the 1970s onward, with agricultural productivity lagging far behind private systems due to the absence of individual incentives, culminating in a 20% drop in gross national product across successor states post-dissolution.[111] Political priorities over economic viability exacerbated shortages, as state enterprises prioritized quotas over consumer needs, leading to black markets and eventual systemic breakdown.[110] In Venezuela, the state-owned oil company Petróleos de Venezuela, S.A. (PDVSA), nationalized in 1976, experienced a production collapse from 3.5 million barrels per day in 1998 to under 500,000 by 2020, driven by political purges of experienced managers, underinvestment, and diversion of revenues for social programs rather than maintenance.[112][113] Mismanagement under Presidents Chávez and Maduro included firing thousands of skilled workers and replacing them with loyalists, resulting in facility deterioration and operational failures that contributed to hyperinflation and GDP contraction exceeding 70% from 2013 to 2021.[114][115] British Leyland, nationalized in 1975 with government infusions totaling over £11 billion (equivalent to £100 billion today), failed to reverse declining market share, producing vehicles plagued by quality issues and labor disputes, as state oversight preserved excess employment at the expense of rationalization and innovation.[116][117] By the 1980s, the firm required repeated bailouts, underscoring how public ownership insulated managers from bankruptcy risks, fostering persistent losses and a 10% share of the UK car market eroding to irrelevance.[116] These cases illustrate key lessons: state-owned enterprises often suffer from principal-agent problems, where political appointees prioritize short-term patronage over long-term viability, leading to corruption and weak procurement.[118] Without competitive pressures and profit imperatives, SOEs exhibit "soft budget constraints," subsidizing inefficiencies that distort resource allocation and stifle innovation, as evidenced by repeated governance failures in procurement and board independence. Empirical reviews of reforms highlight that partial privatization or market-oriented governance can mitigate these, but full state control amplifies risks of capture by ruling elites, amplifying economic downturns during commodity slumps.[119]Criticisms and Controversies
Inefficiency, Corruption, and Political Capture
State-owned enterprises (SOEs) often exhibit inefficiencies stemming from the absence of market-driven incentives, such as profit maximization and competition, which private firms face. Empirical studies consistently find that SOEs underperform private counterparts in productivity and resource allocation, with soft budget constraints allowing persistent losses without bankruptcy threats. For instance, a comprehensive review of privatization outcomes indicates that transferring SOEs to private ownership typically yields efficiency gains through cost reductions and improved operational performance.[45] In developing economies, this manifests as overstaffing and misaligned production, where SOEs prioritize employment or regional development over consumer demand, leading to X-inefficiency—excessive costs unrelated to output.[71] An Asian Development Bank analysis of firm-level data across multiple countries confirms lower total factor productivity in SOEs, attributing it to managerial slack and regulatory capture rather than inherent scale advantages.[3] Corruption thrives in SOEs due to their monopoly positions in strategic sectors, opaque governance, and close ties to political elites, amplifying risks of bribery, embezzlement, and favoritism. A World Bank assessment highlights that corruption is particularly acute in regulated monopolies, where SOEs control essential resources like energy or infrastructure, enabling rent-seeking without competitive checks.[120] IMF research quantifies these costs, showing that high corruption levels correlate with SOE performance declines equivalent to 10-20% lower returns on assets compared to low-corruption environments, even in core sectors like utilities.[8] OECD data from foreign bribery cases reveals that over 80% of investigated instances between 1999 and 2013 involved SOE officials, often through procurement kickbacks or inflated contracts.[121] Weak internal controls exacerbate this, as evidenced by UNODC analyses of SOE vulnerabilities in procurement and licensing, where government proximity facilitates undue influence over board decisions.[122] Political capture occurs when SOEs serve as instruments for patronage, electoral funding, or ideological goals, subordinating economic rationality to ruling party interests. In Brazil's Petrobras scandal (2014-2016), politically appointed executives diverted billions in revenues to fund allied campaigns via overpriced contracts, resulting in a $2 billion loss and operational disruptions.[120] South Africa's state capture under the Zuma administration (2009-2018) saw entities like Eskom and Transnet manipulated for cadre deployment, leading to procurement irregularities costing an estimated 1.5% of GDP annually in inefficiencies and graft.[123] Cross-country evidence from OECD reviews indicates SOEs are routinely exploited for political finance, with appointments favoring loyalty over competence, distorting investment toward short-term gains or connected suppliers.[124] This capture perpetuates inefficiency, as managerial decisions prioritize regime survival—such as maintaining employment for voter bases—over long-term viability, a pattern observed in Central and Eastern European transitions where SOE resources financed post-communist parties.[125] Empirical models of state capture underscore that such dynamics erode firm value, with politically connected SOEs showing 5-15% lower efficiency metrics due to misallocated capital.[126]Innovation Stagnation and Opportunity Costs
State-owned enterprises (SOEs) frequently demonstrate reduced innovation outputs relative to private firms, attributable to weakened profit incentives, bureaucratic inertia, and political interference that prioritize stability and employment over risk-taking and technological breakthroughs. A panel data analysis of Chinese listed firms revealed that state ownership exerts a negative influence on innovation output, measured by patent counts, due to softer budget constraints and diminished competitive pressures. Similarly, cross-country evidence from Europe indicates that higher SOE prevalence correlates with slower economic growth, partly through constrained innovation dynamics in sectors dominated by state control. These patterns stem from agency problems where managers face limited accountability for failure, leading to underinvestment in disruptive technologies.[127][71] Empirical assessments of R&D efficiency further underscore stagnation: state firms convert R&D inputs into outputs, such as patents or productivity gains, less effectively than private counterparts, with studies attributing this to divergent objectives where SOEs favor applied, incremental innovations aligned with government directives over radical, market-driven advancements. In China's manufacturing sector, SOEs exhibit lower productivity despite institutional support, reflecting inefficiencies in innovation processes that hinder long-term technological progress. Research on firm-level data confirms that SOEs generate lower economic value from R&D due to suboptimal incentive structures, rather than inherent capability deficits.[128][129][130] Opportunity costs of state ownership manifest in resource misallocation, where capital and labor tied to underperforming SOEs forego higher returns in private sectors, distorting overall economic productivity. For example, analyses of ownership structures show that increased state participation reduces labor productivity and profitability, implying foregone gains from reallocating assets to competitive markets. In broader economic terms, SOEs' tendency toward excess employment and subsidized operations—evident in historical cases like Soviet-era enterprises—imposes fiscal burdens that crowd out private investment in innovation-intensive activities. A study of 114 major firms across countries found that direct government ownership lowers efficiency metrics, amplifying these costs by locking resources in low-growth entities.[6][131][132] These dynamics contribute to systemic stagnation, as evidenced by lower total factor productivity (TFP) in SOE-heavy industries, where decomposition analyses reveal inefficiencies in resource utilization that private ownership mitigates through market discipline. While partial privatization can mitigate some effects, full state control perpetuates opportunity losses estimated in growth models at several percentage points of GDP per capita in affected economies.[133][71]Contemporary Trends
Recent Nationalizations and Policy Shifts (2000–2025)
In response to the 2008 global financial crisis, governments in developed economies implemented temporary nationalizations of financial institutions to stabilize banking systems and avert broader collapses. The United Kingdom nationalized Northern Rock plc on February 17, 2008, following a liquidity crisis and bank run, with the state acquiring full ownership through HM Treasury; the bank was later sold to Virgin Money in 2012 after recapitalization. In the United States, the federal government took a 60.8% equity stake in General Motors Corporation in June 2009 as part of a $49.5 billion bailout package under the Troubled Asset Relief Program, retaining control until divesting the shares by December 2013, which allowed partial recovery but at a net cost of approximately $10.5 billion to taxpayers. These actions were driven by crisis imperatives rather than ideological commitments to state ownership, often reversed through privatization once stability was restored. In Latin America, left-wing governments pursued ideological nationalizations of natural resources and utilities, aiming to redistribute wealth and assert sovereignty, though often resulting in reduced investment and production declines. Venezuela under President Hugo Chávez nationalized the country's largest private power utility, Electricidad de Caracas, on November 27, 2007, transferring control to the state-owned Corpoelec amid broader expropriations in oil and cement sectors that contributed to a sharp contraction in foreign direct investment from $2.4 billion in 2007 to negative $1.2 billion by 2017.[134] Argentina expropriated 51% of YPF, its majority state-controlled oil company, from Spain's Repsol on April 16, 2012, citing energy self-sufficiency needs; this move triggered international arbitration and correlated with stagnant oil production, dropping from 780,000 barrels per day in 2012 to under 700,000 by 2023 despite reserves. Bolivia under Evo Morales nationalized hydrocarbons in 2006, increasing state take from 18% to 82% of revenues, which boosted fiscal income short-term but led to gas production stagnation and reliance on imports by the 2010s. These cases illustrate causal links between abrupt state takeovers and capital flight, as evidenced by World Bank data showing average FDI inflows in nationalizing Latin American economies falling 40% post-expropriation compared to regional peers. Energy security concerns in Europe prompted targeted nationalizations amid the Russia-Ukraine conflict. Germany acquired a 99.23% stake in Uniper SE by September 2022, following €40 billion in losses from curtailed Russian gas supplies, with the state injecting €13.3 billion in equity to nationalize the utility previously 76% owned by Fortum; this shifted Uniper from a market-oriented trader to a state-directed entity focused on LNG diversification. Similar interventions occurred in the UK, where the government nationalized Bulb Energy in November 2021 under the Energy Act 2022 after the supplier's collapse amid wholesale price spikes, affecting 1.7 million customers and costing £2.3 billion by 2023. These were pragmatic responses to geopolitical shocks rather than broad policy reversals from 1990s privatizations.| Country | Year | Sector/Company | Reason |
|---|---|---|---|
| UK | 2008 | Banking (Northern Rock) | Financial crisis liquidity failure |
| US | 2009 | Automotive (General Motors) | Bailout to prevent bankruptcy |
| Venezuela | 2007 | Power (Electricidad de Caracas) | Ideological resource control |
| Argentina | 2012 | Oil (YPF) | Energy sovereignty |
| Germany | 2022 | Energy (Uniper) | Russian gas supply disruption |
Global Variations and Future Prospects
State ownership exhibits significant variations across regions and economies, largely influenced by historical, political, and resource factors. In emerging markets, particularly in Asia and parts of Eastern Europe, state-owned enterprises (SOEs) dominate key sectors, with revenues from SOEs in competitive markets averaging 17% of GDP in developing countries where data is available.[94] China exemplifies high state involvement, where SOEs number over 1,180 and state ownership in firms with any government stake has risen to 31% of capital by 2017, concentrated in manufacturing and infrastructure.[16][135] In contrast, advanced market economies like the United States maintain minimal direct SOE presence, with state ownership limited to specific entities such as Amtrak or the US Postal Service, reflecting a preference for private enterprise. OECD countries average SOE assets or revenues around 15% of GDP, though this varies: Norway's state holdings include substantial assets valued at approximately $112 billion as of 2023, primarily in energy, while France retains significant stakes in utilities and transport.[136][137] Russia displays elevated levels post-China, with SOEs prominent in energy and defense, underscoring resource nationalism in authoritarian systems.[138]| Country/Region | Approximate SOE Share (% GDP, assets/revenues) | Key Sectors |
|---|---|---|
| China | 30%+ (capital share in state-involved firms) | Manufacturing, real estate |
| OECD Average | 15% | Varied |
| Developing Countries (avg.) | 17% (revenues in competitive sectors) | Manufacturing, tourism |
| United States | <5% (limited entities) | Transport, postal |
| Norway | Significant (state assets ~$112B total) | Energy |
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