Global indicators and <scp>AI</scp> policy: Metrics, policy scripts, and narratives

Artificial intelligence (AI) has become a global policy issue that is actively governed by international actors producing governance indicators. This article argues despite the arguments about disruptions to and due AI, rankings increasingly constitute strong path dependence on AI policy, leading conformity with existing policies institutional practices of economic competitiveness. By analyzing composition data sources indices in competitiveness, innovation, human capital, artificial intelligence, I will show how now evolve sharing concepts. Consequently, these metrics related scripts promote seeming continuity current activities discussed as “revolution” but framed matter “competitiveness,” “openness,” “talent competition,” implying standard perceptions competitiveness innovation. There also narrative element script, future are promoted references history project past into future. My concludes while path-dependent indicators narratives give sense orientation, they problematic portray times disruptions, delimiting alternatives such ethics. 人工智能(AI)已成为一个全球政策问题，由制定治理指标的国际行动者进行积极治理。本文论证认为，尽管存在关于“人工智能对治理和政策造成破坏”的争论，但全球排名越来越对人工智能政策构成强烈的路径依赖，从而导致遵从现有政策和经济竞争力的制度实践。通过分析有关竞争力、创新、人力资本和人工智能的全球指数的构成和数据来源，我将展示全球排名目前如何通过共享数据和概念而发生演变。因此，这些指标和相关政策规范(policy scripts)促进了当前全球竞争力活动的表面连续性。人工智能被讨论为一场“革命”，但被界定为一个关于“竞争力”、“开放”和“人才竞争”的事务，这暗示着对经济竞争力和创新的标准认知。政策规范中也存在一个叙事要素，因为未来的人工智能政策是通过参考历史来推广的，这些历史也将过去投射到未来。本文的结论认为，依赖于路径的政策指标和相关的未来叙事尽管提供了一种方向感，但它们是存在问题的，因为其在颠覆性时代描绘了一种将不同活动相连接的表面连续性，同时界定了一系列政策替代选项，例如人工智能伦理。 La inteligencia (IA) se ha convertido en un tema de política que está activamente gobernado por actores internacionales producen indicadores gobernanza. Este artículo argumenta pesar los argumentos sobre las interrupciones la gobernanza y políticas debido IA, clasificaciones globales constituyen cada vez más una fuerte dependencia del camino para lo lleva conformidad con prácticas institucionales existentes competitividad económica. Al analizar composición fuentes datos índices competitividad, innovación, capital humano e artificial, mostraré cómo evolucionan ahora al compartir conceptos. En consecuencia, estas métricas guiones relacionados promueven aparente continuidad actividades actuales global. IA analiza como “revolución”, pero enmarca cuestión “competitividad”, “apertura” “competencia talentos”, implica percepciones estándar económica innovación. También hay elemento narrativo el guion política, ya futuras referencias historia también proyectan pasado hacia futuro. Mi concluye que, si bien dependientes ruta narrativas relacionadas brindan sentido orientación, son problemáticos representan tiempos interrupciones, delimita alternativas ética IA. issue, linked major social challenges, well promises unforeseen potential enhanced wellbeing (Brynjolfsson & Mcafee, 2012; Feijóo et al., 2020; Mcafee Brynjolfsson, 2017; Pencheva 2020). Yet, there critical observations “AI revolution” concerning qualitative shifts capitalism evolving power relations seen pose significant, even existential challenges democracy economy (O'Donovan, 2019; Zuboff, 2019), involving accountability issues, systemic inequalities, biases algorithms (Barth Arnold, 1999; Bucher, 2018; Eubanks, Pasquale, 2016). Scholars have pointed out emerging issues algorithmic regulation (Yeung Lodge, acknowledging limitations measures, difficulties creating new ones (Di Porto Zuppetta 2021; Ahonen Erkkilä, Ananny Crawford, 2018). Principally, approached an ethical (Council Europe, Wong, 2020), national strategies documents highlighting “ethics” “governance” (Radu, Sloane, 2022; Ulnicane 2020, 2021). might be demanding practice complexity vague conceptualization (Gahnberg, Taeihagh, Along aspects, often competition innovation (Justo-Hanani, Kim, 2023; Murgia Khan, Murphy Waters, Schiff, Stacey, 2019). The perspective particularly forcibly organizations World Economic Forum, Institut Européen d'Administration des Affaires (INSEAD), Bank produce argue indicate countries' ability accommodate revolution.” “digital turn” work established index producers coincides more general ambit measure digital future, apparent launching explicitly address readiness countries cities. These produced smaller hoping make their entry field ranking. But show, closely resembles previous drawing most from metrics. Therefore, convergence between nominally different focus. holds not neutral carry prescriptions steer policies. It therefore important understand conceptualize what kind promote. asks, frame policy?1 through conceptual numerical objectification indices, particular, lead associating it over “talent,” narrowing alternatives, legal frameworks for regulating pending (cf. Robles Carrillo, While no unified discourse or nevertheless information providers potentially influential shaping debate policy. identify development overlap conceptually share data. leads similar which paradoxically static, given arguably revolutionary character this technology. part special politics AI. concept script helps used prescriptions. A can understood “a medium [an organization] frames its own definition reform issue: diagnosis problems followed set prescriptions” (Halliday 2010, p. 84). Unlike agendas priorities, define specific generalizable measures (Kentikelenis Seabrooke, 2017, pp. 1086–1087), prescribing action sequences events based storylines (Schank Abelson, 1977). In fashion, so-called “composite indicators” combine various aim holistic analysis merging across domains seemingly goals communicating uncertain use creates assessments novel present “storyline” accompanies ranking propose historical “technological revolutions” anticipated Next, my theoretical framework, indicator production, carrying imaginaries research design covers networks producers, focus those them conceptually. converging intensive cross-referencing concepts because ideational convergence, reduce competitive fostering effectively reproduce strengthen rather than face Though quantification means longer history, been surge two decades. Comparing identifying cities forerunners laggards digitization, acquired governing functions, challenging traditional (Broome Quirk, 2015; Kelley Simmons, Löwenheim, 2008; Porter, 2012). Previous highlighted numbers instruments, effects always consistent unintended consequences (Espeland Sauder, 2007; Pidd, 2005; Robinson, 2003; Smith, 1995; Van Thiel Leeuw, 2002). Global normative Western-centered (Malito approach complements mechanisms influence addressing interplay elements uphold Concerning quantification, builds ranking, where good challenged sets city compelling old alter methodology slightly launch altogether (Erkkilä Piironen, 2018, Despite (Freistein, 2016), entering compelled validate against methodological choices causal beliefs Gieryn, 1983; Haas, 1992), structuration (Giddens, 1986). observe earlier measurements strongly resemble each other, echoing around Aiginger Rodrik, Vogel, Ketels, 2006). emphasis digitization claim relevant evolved only marginally measurement. evolution incremental terms, objectified subjects gives attributes limits (Desrosières, 1998, 9; Miller Rose, 1990; Robson, 1992). As shifting towards measuring readiness, come neutrality, apolitical privilege certain ideas others, actions (Dahler-Larsen, 2014; Espeland Hansen narrow one needs objectify subjectify responsible discourses calling Erkkilä links prescribed, according storyline Schank study framing rankings. am interested consisting relationships repositing meaningful way. Using range allows bridging domains, mainly composite borrow sets. empirical shows, competitiveness.” constitutes associations “robust visions” referring attempt foresee (past) evidence, instead trying reimagine (Berten Kranke, 2022, 160). alternative visions being considered. response disruptive technology, constructed (af Malmborg, cf. Jasanoff 2015). contain shows objectifications narratives. shape limit approaches Alasuutari Qadir, 2016; Jessop, 2010; Sum, 2009). construct competition, countries, regions, compete like units. Moreover, colonize Robertson, 2017) rigid assessment criteria, predictions performance, They hence rule effective political horizons, Policy prescribe accompany claims done past, “traditions” evoked justify proposed. Such coincide happen context fully fit horizons expectation (Koselleck, 2004). resonates trend anticipatory 2022), struggles imagined future(s) tend heightened during crisis (Robertson, 2022). uncertainty our “arms race” vision merges invented traditions contemporary technological revolution series many, leaving states alleviate costs. model becomes race talent describing progress problematic, horizon Arendt, 1973, 137, 143; Hyvönen, Skinner, 1989). indications democratic do readily frame. Analyzing technical annexes reports explore To analyze production selection temporally motivated, covering who relevance tracking cope revolution,” recent specifically readiness.” Competitiveness Index (GCI), Innovation (GII), Talent (GTCI), Human Capital (HCI) represent sets, prominent capital. With exception HCI, all rankings, meaning results list. addition, crafted AI: (GAI), Government Readiness (AIRI), City (GCAIRI). All above data, Gephi network visualization tool linkages selected sources, is, used. further classified type organization (1) corporations (including consultancies), (2) intergovernmental organizations, (3) European Union (EU), (4) nonprofit (think tanks, NGOs, foundations), (5) educational institutions, (6) institutions. conduct comparative uncover operationalized Daly, Sartori, 1970). accompanying navigating af problem Bacchi, 1999) (Miller 1990) refer experiences Here peer 2004) important, “openness” producers' (Skinner, next launched affects issue. When 2018), conform norms rites verification (Haas, carve niche (Gieryn, 1983). Table 1 governance, time. number grown fields, geographically contextualized, studying thematically nuanced, items competition. draw university Freedom (1972) Press (1980) Corruption Perception (1995) Worldwide Governance Indicators (1996) Fringe Special (2001) (2002) Integrity Report/Index (2006) Open Budget Bertelsmann Transformation Ibrahim African (2007) Net Initiative Actionable (2008) at Glance (2009) Report—Integrity Scorecard (2010) Right Information (RTI) Rating (2011) Implementation Assessment Tool (IAT) Report (1979) Yearbook (1989) Business (2000) Growth (2004) Centers Commerce Rich States, Poor States A.T. Kerneys Cities Power EU Regional Hot Spots 2025 (2013) (2014) Academic Ranking Universities (2003) Times Higher Education Supplement Webometrics Affordability Accessibility Comparison Rankings (2005) Performance scientific papers world universities Leiden SCImago Institutions QS University Education—Thomson Reuters High Impact U-Multirank Learning Outcomes (AHELO) (2012) Scoreboard 1000 International Bloomberg Startup Ecosystem Thomson Top 100 Innovators Cleantech Innovative (2015) Contributors Detractors (2016) 25 Innovators—Government GLOBECO Happiness Happy Planet Gallup-Sharecare Well-Being OECD Better Life UN Healthiest Countries Indigo Wellbeing (2018) E-Government Readiness/Development E-Participation (2017) (2019) Digital highly producers—also article—are revising transformations automation (INSEAD, Adecco Group, Google Inc., 2019c) using motivation (World Bank, However, though increased, nominal expanded, them, both terms coming together under notion Another emerged complement visible 1. critique GDP standardized (Stiglitz 2009), shift wellbeing. noteworthy Forum's (GCI) occurs same timely ties changing nature (GTCI) promotes companion “the age AI” Also, AI-specific emerging, Oxford Insights, Oliver Wyman Tortoise media company's (GAI) first assess capacity (Oliver 2019a; Tortoise, 2019a, 1). WEF's GCI pressure serves other many underlying Executive Opinion Survey Figure showing (HCI), (GCAIRI), (GAI). (organizations data) Gephi's Fruchterman-Reingold layout.2 nodes (i.e., connecting points) graph it. edges links) analyzed (in capitalized acronyms) to. line strength indicates points were sourced.3 Individual may provide significant amounts several indices. differently, empirically difficult differentiate documentation does state if named source actually reposited it, so, did original was somehow modified. case point, name source, merely acts repository organizations. argument instead. along similarities underpinnings understanding construction 2 GCI, GII, GTCI, HCI whose claimed assessing Persson, 2019c). 12 pillars Enabling environment Markets ecosystem input sub-index output Six Input sub-index: Output Forum arguing society result Since publication 2004, making active concern countries. 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