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Center for Institutional Reform and the Informal Sector CENTER FOR INSTITUTIONAL REFORM AND THE INFORMAL SECTOR University of Maryland, College Park Center Office: IRIS Center, 2105 Morrill Hall, College Park, MD 20742 Telephone (301) 405-3110 Fax (301) 405-3020 http://www.inform.umd.edu/IRIS Market –Augmenting Government? States and Corporations in Nineteenth Century America March 1999 John Joseph Wallis Working Paper #228 This publication was made possible through support provided by the U.S. Agency for International Development, under Cooperative Agreement No. DHR-0015-A-00-0031-00 to the Center for Institutional Reform and the Informal Sector (IRIS) and administered by the Office of Economic and Institutional Reform, Center for Economic Growth, Bureau for Global Programs, Field Support and Research. The views and analyses in the report do not necessarily reflect the official position of the IRIS Center or the U.S.A.I.D. Author: John Joseph Wallis, Department of Economics, University of Maryland, College Park. 1 Market-Augmenting Government? States and Corporations in Nineteenth Century America John Joseph Wallis Department of Economics University of Maryland & NBER This paper was prepared for an IRIS conference on Market-augmenting government in March 1999. The paper germinated in a series of discussions I had with Mancur Olson in the weeks before is untimely passing in the winter of 1998. I would like to thank Chas Cadwell and Omar Azfar for giving me the opportunity and the spur to develop these ideas. The reader does not require to be told, that we have in our country an infinite number of corporations aggregate, which have no concern whatever with affairs of a municipal nature. These associations we not only find scattered throughout every cultivated part of the United States, but so engaged are they in all the varieties of useful pursuit, that we see them directing the concentration of mind and capital to the advancement of religion; to the diffusion of literature, science and the arts; to the prosecution of plans of internal communications and improvement; and to the encouragement and extension of the great interests of commerce, agriculture, and manufactures. There is a great difference in this respect between our own country, and the country from which we have derived a great portion of our laws. What is done in England by combination, unless it be the management of municipal concerns, is most generally done by a combination of individuals, established by mere articles of agreement. On the other hand, what is done here by the co-operation of several persons, is, in the greater number of instances, the result of consolidation effected by an express act or charter of incorporation. Preface to A Treatise on the Law of Private Corporations Aggregate, Joseph K. Angell and Samuel Ames, 1831. I. The Problem By 1830, Americans were aware that their attitude towards business incorporation was something new in the world. They had departed from the model of the British and were seeking out new ways of combining individual effort, in both public and private forms, that would allow 2 their new society to expand and grow. By 1900, Americans had in place the outlines of the modern corporation that would dominate manufacturing and finance throughout the global economy in the 20th century. Over the last decade, Mancur Olson became interested in why governments might pursue policies that promote, rather than retard, economic growth. In a series of papers, he presented a framework in which a state? s economic policies depended on its fiscal interest. Governments have a simple goal: maximize revenues. States will sometimes find it in their fiscal interest to augment market exchange, because the resulting economic growth increases the ruler? s revenue. They are unconcerned whether they fulfill their goals by stealing, taxing, or providing market infrastructure. The results are as likely to be policies that retard growth as they are to promote growth. Market-augmenting government policies include defining and enforcing property rights, providing and supporting an efficient and fair judicial system, and regulating and supporting various forms of business organization. The development of America policy towards corporations is a natural venue to understand how ? market-augmenting government? evolves. The corporate form is one of the central institutions of modern economies and the American experience offers several advantages for the study of government creation and regulation of corporations. First, the American experience was not derivative. Hurst noted that ? Both in the colonial years and after independence, corporation law was homemade product.? 1 Americans were creating an institution out of whole cloth, not following an English example. Second, corporations were almost exclusively the creations of states. The First and Second Banks of the United States were the only corporations chartered by 1 Hurst, 1. ?In sum, when we began making important use of the corporation for business in the United States from about 1780, there was little relevant legal experience on which to draw. For 100 years, we proceeded to use the corporate instrument on a scale unmatched in England. In that development we built public policy toward the corporation almost wholly out of our own wants and concerns, shaped primarily by our own institutions. The one definite inheritance was the idea that some positive act of the sovereign was necessary to create corporate status. But we gave our own content to that idea.? 8-9. See Maier, 1992 and 3 the federal government before the Civil War. The variety of government policies toward corporations provides an unusual opportunity to see widely different policy outcomes in an institutional environment that was fairly homogeneous. This relative homogeneity was abetted by the Supreme Court? s decision in Dartmouth College vs. Woodward, when John Marshall wrote in his decision that ? A corporation is an artificial being, invisible, intangible, and existing only in its contemplation of law. Being the mere creatures of law, it possesses only those properties which the charter of its creation confers upon it, either expressly, or as incidental to its very existence.? 2 By rendering the decision in this way, the Court insured that corporations would be treated as artificial persons at law, cloaking corporations in many of the constitutional protections provided to persons.3 The homogeneity was an underlying principle, however, not an outcome. In 1839, in Bank of Augusta v. Earle, the Court placed a major limit on the constitutional protection available to corporations, when it delineated that while corporations were ? persons? they were not ? citizens.? Thus corporations did not enjoy a constitutional right to do business in a state other than the one in which it was chartered, nor was it entitled to all privileges and immunities of citizens in the several states. If we want to understand when and why governments will pursue and support market augmenting policies, it is hard to imagine a better historical situation. The wide variety of outcomes from state to state produce a wealth of variation to explain. While we cannot test 1993 as well. 2 The Trustees of Dartmouth College v. Woodward, 4 Wheaton 518, 636 (U.S. 1819). 3??Marshall?s Court ruled that the [New Hampshire] statute was invalid because it violated the clause in the federal Constitution, which forbids a state to pass any bill impairing the obligation of contract. To rule that corporate charter enjoyed the protection of a ?contract? under the constitutional provision was a clear-cut act of judicial lawmaking. Indeed, the lawmaking is so clear as to indicate that the Court was pursuing an objective, which it rated of high importance. The case did not involve a business corporation. But business corporations were playing a rapidly growing part in the economy, in great measure because their charters gave them operational utilities similar to those which Marshall?s opinion noted as making the college an effective, continuing organization. Contemporaries did not emphasize the decision as important for business corporations. But this was, in fact, its prime functional significance.? Hurst, 62-3. 4 directly whether some state policies were better than others at promoting income growth, we can observe directly the effect of policies on the number of corporations and, with some more difficulty, the capital of those corporations.4 To the extent that we can measure the sophistication of a financial network by the density and specialization of financial intermediaries, we can directly observe the effect of state policies on market development. That brings us to two additional benefits of looking at American corporations and state governments. This conference volume focuses on the role of market-augmenting government in capital and financial markets. Incorporated banks were the most important financial intermediary in the early 19th century, and the United States possessed a sophisticated financial system by 1830.5 Although banks account for less than a quarter of the corporate charters issued in any state, charters for banks were typically the most valuable charters issued and, as a result, the most hotly contested.6 The discussion of early 19th century chartering will focus almost exclusively on banks. The banking system was a critically important part of the financial markets in the individual states and throughout the country. Government regulation and incorporation of banks was the aspect of market-augmenting government with the most direct impact on capital markets. Finally, corporations were enormously important to state finances, and, again, important in ways that varied widely between states. Revenues derived from specific corporate revenue sources, such as capital taxes and charter fees, were often twenty to fifty percent of state revenues. It easy to see and count corporations and it is easy to observe a state? s fiscal interest, since the 4 The only state level income estimates for the 19th century are completely unsuited for a test of this type.
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