Hoover, bush, and great depressions.
Thornton, Mark
INTRODUCTION
The most basic rule of economic policy is to allow prices to adjust
to market conditions. This maintains Say's Law and produces what
Bastiat called economic harmony. Furthermore, unhampered markets also
minimize distortions and disruptions introduced by external forces. Most
importantly, the unhampered price system minimizes the impact of the
business cycle on the economy. This paper examines two historical
episodes in which interventionist policies turned business cycle
corrections into depressions. (1)
The first episode occurred in the Great Depression during the
Hoover and Roosevelt administrations. The second episode is the current
economic crisis, which began during the George W. Bush administration
and has carried over into the Obama administration. (2) Hoover's
interventionist policies focused on labor markets with the goal of
keeping wages and employment high. Bush's interventionist policies
focused on capital markets with the goal of keeping financial markets
functioning. While both Hoover and Bush have reputations of supporting
limited government, the facts suggest that both went to unprecedented
lengths in employing interventionist policies to fight economic crises.
In both cases they failed, while managing to set the stage for further
increases in the size and scope of government intervention.
In addition to setting the historical record straight, it will be
argued that it was the interventionist policies undertaken during these
crises that turned recessions into depressions. These policies created
the conditions necessary for a depression primarily because they had the
effect of undermining the workings of important areas of the price
system. This is the Rothbard (1963) thesis of how a contraction in the
economy became the Great Depression. Essentially, Rothbard uses the
Austrian theory of the business cycle to construct a boom, bust, and
recovery cycle. He then employs the Austrian theory of interventionism to explain why the economy does not recover but instead becomes snared
in an ongoing depression. This approach can be applied to the present
crisis to provide a better understanding of current events.
HOOVER THE INTERVENTIONIST
Hoover claimed to be a believer in limited government and
European-style liberalism, but his actions both before and after the
stock market crash of 1929 suggest otherwise. Before becoming President,
Hoover spent many years in government service as an advocate of
interventionist policies. After becoming President, Hoover undertook
unprecedented and wide-ranging action to address the stock market crash
of 1929. His interventionist policies were sufficient to transform a
typical recession into the Great Depression. His actions were
"limited" only in the sense that he did not want all of his
policies to become permanent features of government. Additionally, in
Hoover's day the federal government lacked the full complement of
institutions and powers that it would attain in the post New Deal
period.
However, the myth of Hoover as a do-nothing conservative who
allowed the crisis to bloom into a depression remains as strong as ever.
In the September 2008 issue of the American Economic Review, Gauti
Eggertsson's article "Great Expectations and the End of the
Great Depression" explicitly links Hoover with an adherence to the
gold standard, balanced budgets, and small government. Nobel laureate Paul Krugman, the influential economic columnist at the New York Times,
also subscribes to the Hoover myth (Murphy 2010). However, even the
basic facts belie this myth. For example, federal spending increased by
almost 50 percent over the two years following the crash (during a
period of significant price deflation). During that same period, the
federal budget went from a small surplus to a deficit of approximately 4
percent of GDP. Meanwhile, the Federal Reserve reduced interest rates
from 6 percent to 1.5 percent--the lowest level in U.S. history.
In order to get a proper perspective on Hoover, recall that he had
previously served on the War Planning Board in World War I and later
agreed to serve President Warren Harding as Secretary of Commerce only
if he was promised to have "a free hand in all economic
policy." It is also revealing that as a result of all his tireless
and frantic work throughout the federal government he was subsequently
dubbed the "Secretary of Commerce and the Undersecretary of
Everything Else." (3)
Based on Hoover's term as President, Franklin Roosevelt called
the Hoover administration "the most reckless and extravagant that I
have been able to discover in the statistical record of any peacetime
government anywhere, any time." (4) Hoover's biographer Harris
Warren (1959, p. viii) claims that Hoover's interventionism was so
significant that he should be given credit for being the true architect
of the New Deal:
No one, it seems to me, has done justice to the Hoover
Administration.... The result is a distorted picture of what some
historians are calling "the age of Roosevelt." Projected against
the customary biased, prejudiced, and grossly unfair accounts of
Hoover's presidency, the New Deal assumes an unnatural and unreal
luster. Forgotten is the fact that what Hoover did was in a very
real sense preparation for the next steps known collectively as the
New Deal.
Until recently, most of the economics profession has suffered under
the myth that Hoover was a dogmatic proponent of laissez-faire
economics. Fortunately, recent work from within mainstream economics
seems to be finally making some progress in overturning this myth and
confirming the Rothbard thesis. Lee Ohanian (2009) has developed a
theory of "labor market failure" to explain the Great
Depression. However, the labor market "failed" because of
Hoover. Specifically, the failure was caused by Hoover's industrial
labor program and his famous White House conferences where Hoover
advised employers not to cut wages and to instead use labor sharing
schemes when employment needed to be reduced. Ohanian concludes that
Hoover's policies caused the Great Depression and made it three
times more severe than necessary. It also would have been of far shorter
duration had the policies not been put in place. (5) Vedder and Gallaway
(1993, p. 146) have also demonstrated in great detail the validity of
Rothbard's Hoover thesis. They portray Hoover as a proto-New Dealer
whose high wage policy turned a correction into a depression.
[I]n a very real sense Roosevelt merely continued and expanded upon
the high-wage doctrine first articulated by Hoover. Far from being
the bold new reformer saving the nation from the laissez-faire
prescriptions of a reactionary president, Roosevelt was a chief
executive who adroitly and charismatically expanded the legacy left
by his progressive, if colorless, predecessor. He was aided and
abetted in this by the emerging respectability of
underconsumptionism (later called Keynesianism) in the intellectual
community.
The first point regarding the Rothbard thesis is that it was
Hoover's Secretary of the Treasury, Andrew Mellon (a holdover from
previous Republican administrations) who was the advocate of do-nothing
liquidationism. Mellon wanted to allow the same type of financial
liquidation to take place that quickly cured the Depression of 1920-21.
Hoover understood that Mellon's recommendations were the policies
followed by previous Presidents, and he steadfastly opposed that
approach. Hoover had advocated New Deal-style policies during the
Depression of 1920-21, but the economy recovered quickly under President
Harding's policy of laissez-faire liquidationism. (6)
Hoover believed that if he could stimulate the economy with
government spending, protect jobs, and keep wages from falling he could
prevent a big bust in the economy. Throughout his term in office, Hoover
would do anything that was politically feasible in order to achieve his
purpose. Surprisingly, even after more than three years of crushing
economic consequences from his policies, Hoover felt fully justified in
his actions.
The past three years have been a time of unparalleled economic
calamity. They have been years of greater suffering and hardship than
any which have come to the American people since the aftermath of the
Civil War.
... Two courses were open. We might have done nothing. That would
have been utter ruin. Instead, we met the situation with proposals to
private business and the Congress of the most gigantic program of
economic defense and counterattack ever evolved in the history of the
Republic. We put it into action. (Hoover, 1934, vol. 2, pp. 247, 249)
The stock market began its meltdown on October 24, 1929. When the
crisis hit, Hoover wasted little time putting to work his
"proposals to private business and the Congress of the most
gigantic program of economic defense and counterattack ever
evolved."
On November 19 he met with the presidents of the railroads where he
extracted promises from the railroads to increase construction and
spending. Two days later he received promises from leading
industrialists to expand construction, maintain wage rates, and to
shorten the work week if labor had to be cut. The same day, labor
leaders agreed with Hoover's plans, while the next day leaders in
the construction industry agreed to maintain wage rates. On November 27,
representatives from the public utility industries agreed to expand
construction and to maintain wage rates.
The federal government began intervening in farming around the
beginning of the 20th century, and Hoover promoted such intervention
while working in the Harding administration. As President he supported
subsidies and marketing cartels for farmers. For example, two days after
the stock market crash, his pet bureau, the Federal Farm Board,
announced $150 million in low interest loans for wheat co-ops and $10
million to set up a centralized marketing board for grain co-ops. More
money was added to these programs and more crops incorporated into this
policy, but naturally these subsidies only encouraged more production
and lower, not higher, prices. Eventually, agricultural prices crashed,
and the government programs lost millions of dollars.
By 1929, Hoover had already been promoting New Deal-like policies
for more than a decade. His theory was both to keep wages and prices
high and also to stimulate the economy with public (and private) works
in order to protect the economy from depression and deflation. He
incorrectly thought that high wages caused prosperity rather than
prosperity causing higher wage rates. This is like a doctor treating the
symptoms of a disease but only making the disease worse. All during this
same time frame, Hoover pushed for more public works spending at both
the federal and state levels.
In 1930 Hoover signed the Smoot-Hawley Tariff and pushed through
other measures in an attempt to improve the unemployment rate such as
banning immigration, increasing deportations, and even issuing
propaganda to discourage people from entering the work force. Some might
argue that it is unfair to include Smoot-Hawley as a New Deal or
progressive policy, but it is included here because, like other such
policies, it was designed to "protect" labor and keep wages
high. There was also additional public works money allocated to
"stimulate" the economy in 1930.
Throughout the remainder of his term in office, Hoover acted
vigorously to increase spending on public works projects and to keep
wages and prices high. In fact, real wage rates at the end of his term
were higher than when he began his term in 1929 (despite the fact that
the unemployment rate increased to all time highs, [Vedder and Gallaway,
1993, p. 84]). He also acted to change bankruptcy laws in favor of
debtors, to establish the Reconstruction Finance Corporation and the
Home Loan Bank, and a variety of other progressive measures to foster
government lending and to alleviate the deepening economic crisis.
Hoover and the Federal Reserve favored inflationary policies, but only
to the extent that they did not threaten the viability of the gold
standard.
Rothbard (1963) has demonstrated that the widely held view of
Hoover as a disciple of laissez faire is clearly nonsense. He showed
that Hoover's efforts to protect labor and keep wages high was a
recipe for economic disaster, and that ultimately his policies were
responsible for turning the recession of 1929-30 into the Great
Depression. Furthermore, Hoover was actually an innovator and advocate
of New Deal-like policies. For a contemporaneous account of the Hoover
depression, see Garret (1932) and Robbins (1934). For a modern and
concise restatement of Rothbard's analysis, see Murphy (2009).
BUSH THE INTERVENTIONIST
President George W. Bush claims to be an advocate of limited
government, although his model is Ronald Reagan rather than European
liberalism. He served when two large economic bubbles burst. During the
first bust in 2001, Bush initially resorted to Keynesian remedies that
did not work, but tax cuts in 2003 did quicken the pace of recovery. The
second bubble burst near the end of his second term, and he undertook
dramatic and unprecedented actions to save the economy. If the Austrian
theory of the business cycle and theory of interventionism is correct,
then Bush may have set the stage for America's Second Great
Depression.
In contrast to folklore, it has been established that Hoover was a
longtime interventionist even before he became President. What about
George W. Bush? Was he an advocate of laissez-faire who turned Keynesian
when the economic crisis emerged?
When George W. Bush ran for President in 2000, neither of the major
candidates appealed to me. Frankly, my greatest concern was that neither
candidate was very smart, and that one would indeed be elected
President. During the campaign I received an email from a group called
"Economists for Bush." The email contained a letter which had
been signed by a number of important, free market mainstream economists.
The email asked for my endorsement of Bush and his policies relating to Social Security, income taxes, education, government spending, and
international trade. The Bush economic platform basically called for
modifications of how government should run everything with a simple
promise of better, more efficient management.
Studying these political promises, I thought about the two possible
ideologies of George Bush: the old Bush family ideology of inflation and
war, and the younger Bush's adopted ideology of evangelical
conservatism. I ultimately decided that both ideologies would lead to
bad economics. His promises were simply not good enough. The
"letter" came in the form of an email in which the email
addresses had been placed in the "Cc:" line rather than the
"Bcc:" line, so I decided to take the opportunity to offer a
memo of my own to this group.
In my return memo I rejected the idea of endorsing the Bush
economic plan. For example, the plan called for
"strengthening" and "saving" Social Security. By any
reasonable account, Social Security has become the unsustainable and
dangerous institution that critics have maintained over the last three
quarters of a century. I responded that any rational policy should have
the aim of eliminating Social Security "as quickly as humanly
possible." The budgetary plank of the letter called for holding
down government spending, redirecting funds to the military and paying
off the national debt. In response I noted that the mechanisms Bush
called for to hold down spending would not work and that "we
already spend enough on national defense unless you have in mind getting
America involved in even more international conflicts like the former
Yugoslavia, Iraq, Somalia, etc."
It hardly seems worth the effort to demonstrate that George W. Bush
was not a small-government conservative during his terms in office. For
example, annual federal spending increased by over $1.1 trillion during
his tenure and an additional $1 trillion in 2009. Even as a percentage
of GDP, federal spending increased from 18.5 percent in 2001 to 21
percent in 2008. This was the highest level since 1994, and it erased
all the progress that had occurred during the Clinton years. Instead of
holding down government spending, he greatly increased it in all areas.
Bush also famously took the federal budget from a massive surplus
to a massive deficit. If we adjust the federal budget deficit/ surplus
for inflation and then compare that figure to GDP, we find that Bush
came into office with a real budget surplus of 1.3 percent of GDP and
left with a real deficit of 3.2 percent of GDP. There were hardly any
budget surpluses in my lifetime until the Clinton tech bubble of the
late 1990s. Bush's economic legacy is therefore a return of the
large and growing budget deficits of his father's generation.
Instead of "continuing to pay off the national debt," we now
must shoulder trillion dollar annual deficits for the foreseeable
future.
The Bush administration's response to the emerging crisis
started with the usual interest rate cuts by the Federal Reserve. In
mid-December of 2007, the Federal Reserve announced the first of many
unprecedented moves with the Term Auction Facility (TAF) in which loans
would be auctioned off to depository institutions based on a variety of
collateral. They also established reciprocal currency arrangements with
the European Central Bank and the Swiss National Bank. In mid-February
of 2008, President Bush signed into law the Economic Stimulus Act of
2008, which provided $150 billion in tax rebates. In mid-March, the
Federal Reserve announced the Term Securities Lending Facility, which
could lend up to $200 billion of Treasury securities to institutions on
collateral. They also announced the Primary Dealer Credit Facility and
the Fed's arrangement of J.P. Morgan's subsidized takeover of
Bear Stearns. The administration first tried to financially bolster
Fannie Mae and Freddie Mac in July, but the two government-sponsored
entities had to be bailed out and taken over in September. The takeover
of AIG would quickly follow, along with the government's backing of
money market accounts. In October, Bush signed into law the $700 billion
Troubled Asset Relief Program, or TARP, and increased deposit insurance
to $250,000. Finally, the U.S. Treasury Department purchased $125
billion in preferred stock in nine U.S. banks.
This is just a rough sketch of the Bush's effort to fight the
crisis during the last year of his tenure. Most of the programs
mentioned above experienced several extensions and expansions, and of
course there were many other interventions such as the bailouts for
American automakers and expansions of foreign credit lines and swaps.
Much of the administration's response came from the Federal
Reserve, which was in the hands of Bush appointee Ben Bernanke, and from
the Treasury Department, which was also headed by a Bush appointee, the
former CEO of Goldman Saks Hank Paulson. It would therefore seem clear
that President Bush is a big-government interventionist and that his
administration attacked the economic correction with an extensive and in
many cases unprecedented interventionism. The only major difference from
Hoover is that while Hoover mainly targeted wage rates and employment,
Bush made the preservation of financial markets a high priority.
INTERVENTIONISM TURNS CRISIS INTO DEPRESSION
Austrian economists have a well-developed theory that explains the
boom, bubble, bust, and recovery. A good introduction to the Austrian
theory of the business cycle can be found in Larry Sechrest's
article "Explaining Malinvestment and Overinvestment."
Sechrest wrote the article to provide a pedagogical device for economic
students, but academic economists will probably be able to understand it
as well.
Here we examine the case of business cycles in which, instead of
recovery, the economy enters a prolonged economic depression or
recession. The types of intervention that cause business cycles are
restricted to money and credit. The types of intervention that cause
depressions can be of a monetary, fiscal or regulatory nature. Even
moral suasion can contribute to the making of a depression, as was the
case with Herbert Hoover. The most effective depression-producing
program would include a variety of interventions. The only necessary
requirement is that the interventions help to forestall the correction
process and that the interventions collectively undermine the ability of
the price system and the system of profit and loss to properly
reallocate resources. Austrians find that the cycle is the result of
monetary intervention and that depressions emerge as the result of
subsequent interventions designed to forestall the corrective processes
of the bust.
Among all business cycles, few have degenerated into prolonged
depressions or recessions. Most business cycles come and go so quickly
that received wisdom recommends that the government do nothing except
for minor adjustments to monetary and fiscal policy along with so-called
"automatic stabilizers." The exceptions to this rule include
the Great Depression, the stagflation of the 1970s, the Japanese
"Lost Decade," and possibly the current economic crisis.
What makes the difference between the ordinary business cycle and
an extraordinary depression? The one factor that is consistent in all
four of the major crises is massive government intervention to address
the initial economic crisis. In all four cases, the government
responded, not in the traditional laissez faire manner of leaving things
alone, but instead with policies that attempted to reverse the economic
crisis.
In the first three major depressions, governments consistently
intervened in the economy and made long-term institutional changes in
the economy. In the case of the stagflation of the 1970s, the government
met the initial crisis with comprehensive wage and price controls and
the closing of the gold window, along with a loose monetary policy,
deficit spending and bailouts. The Japanese bubble-bust was also met
with intervention on a massive scale including bailouts, zero percent
interest rates, public works spending and huge budget deficits. Even
Paul Krugman was impressed with Japan's efforts:
Think of it as the WPA on steroids. Over the past decade Japan has
used enormous public works projects as a way to create jobs and pump
money into the economy. The statistics are awesome. In 1996 Japan's
public works spending, as a share of GDP, was more than four times that
of the United States. Japan poured as much concrete as we did, though it
has a little less than half our population and 4 percent of our land
area. One Japanese worker in 10 was employed in the construction
industry, far more than in other advanced countries. (Krugman, 2001)
Unfortunately it did not work, the stagnation continued, and all
that deficit spending has left Japan with a staggering national debt.
The reason that interventionism does not work is that it
misallocates more resources in the economy. More importantly, it
disturbs, distorts and destroys the corrective process whereby
entrepreneurs, the price system, and the bankruptcy and foreclosure
procedures do their jobs in reallocating resources and prices back into
a sustainable framework.
In dealing with economic crisis, one prominent weapon in the
arsenal of interventionist economic policy is a loose money and credit
policy. This policy has the defect of preventing, or at least stalling
and distorting, the process of deflation, which provides the cleansing
and rebalancing effect on the economy where resources can be reallocated
to more valuable and sustainable uses. Loose monetary policy also sets
up expectations for a more restrictive monetary policy in the future,
while its low interest rates discourage savings and future growth. Loose
monetary policy in the 1970s (US), 1990s (Japan), and today (globally)
have produced no curative effect, and notice that most economists
consider Paul Volcker's restrictive monetary policy in the early
1980s a success.
Public works spending, stimulus packages and deficit spending are
also (wrongly) considered important policies to address economic
contractions. The idea is that government spending replaces declining
private sector spending in order to maintain the level of GDP. However,
it is easy to recognize that such policies also stifle the reallocation
of resources that is called for in any type of correction process.
Government spending is determined politically and bureaucratically, so
there will inevitably be mismatches in resources in the economy. As
government spends, it creates relative scarcities in resources like
cement and bulldozers, and relative abundances in resources like golf
carts and electrical engineers. Such micro-misalignments create new
roadblocks on the path to economic recovery. In the short run, such
policies produce less than a dollar's worth of bang for the buck
(even if it does increase GDP by a dollar). In the longer term, this
approach increases the government debt and tax burdens on the economy.
The evidence from the Great Depression, the stagflation of the 1970s,
and the Japanese malaise clearly suggest that the government spending
approach has more of a debilitating than a remedial effect. In the
current crisis, the stimulus package of $787 billion has failed by a
wide margin to meet projections of the Obama Administration of
containing the unemployment rate at less than 8 percent. (7)
Bailouts are simply a hidden form of discretionary protectionism
and should be the poster child for the ill effects of interventionism.
Instead of allowing for entrepreneur-driven change (restructuring,
downsizing, outsourcing, takeovers, mergers, etc.), bankruptcy and
foreclosure, and other forms of adjustment to take place, bailouts
forestall the adjustment process, engender rent seeking, and create a
moral hazard. In the absence of bailouts, there are myriad ways in which
individuals adjust to economic downturns that are largely
"unseen" by politicians and bureaucrats, but which are
nonetheless the basic elements of the corrective process. The presence
of bailouts turns the attention of entrepreneurs away from such
adjustments and towards the acquisition of bailouts and other rent
seeking and non-productive activities. Bailouts also set a precedent and
thereby create a moral hazard that destabilizes rather than stabilizes
the economy. In the current crisis, we have seen everything from
bailouts for banks that are "too big to fail," to the
takeovers of AIG, GM, Fannie Mae and Freddie Mac, and forbearance laws
and policies that prevent foreclosure on homeowners who are delinquent
on their mortgages. Many of the same effects caused by protectionist
trade policies also apply to bailouts.
There is yet another negative effect from interventionist policies
that is important to consider. The combination of interventionist
policies, quickly conceived, implemented, and often altered, fosters an
environment of "regime uncertainty." Higgs (1997) described
this concept as entrepreneurial uncertainty brought about by uncertainty
regarding the future of economic policy, or simply policy that threatens
entrepreneurs and investors. One might imagine the entrepreneur who is
trying to digest several policy changes being told that there is a
crisis and that policy X will save him, only to learn that policy X has
failed and will be replaced by policy Y which will save the day, only to
learn that policy Y has not worked, but that policy Z will get the job
done. All of this confusion causes entrepreneurs to suffer from
"regime uncertainty" which in turn reduces investment and the
hiring of labor. As the fog clears, entrepreneurs realize that the
general economic environment has changed. New entry and profit
opportunities for entrepreneurs have been reduced while at the same time
economic policy is delaying the exit of firms suffering large economic
losses. In other words, the price system is hampered and the economy is
no longer competitive. It would be hard to disagree with Ben Powell (2009, p. 20) who characterizes the current political environment as one
of "regime worsening."
THE LESSON OF HOOVER AND BUSH
The lesson of Hoover and Bush is to avoid the temptation to deploy
interventionist policies in the face of an economic crisis. To be
panicked into interventionist policies is to be lured by the ephemeral
hope that man can control and manipulate a society without causing a
multitude of unintended consequences. The result is a worsening of the
economic crisis, economic depression, and stagnation. For Hoover and
Bush, it is the humiliation of history. While the history of the current
crisis has yet to be fully written, there is already a striking parallel
taking shape between Roosevelt's following of Hoover's lead
and Obama's similar amplification of Bush-era economic policies. In
each case the follower builds on the agenda of the leader. If these
parallels continue, it implies difficult times ahead.
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Folsom, Burton, Jr. 2008. New Deal or Raw Deal? How FDR's
Economic Legacy Has Damaged America. New York: Threshold Editions.
Garret, Garet. 1932. The Bubble that Broke the World. Boston:
Little, Brown and Co.
Higgs, Robert. 1997. "Regime Uncertainty: Why the Great
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--. 1992. "Wartime Prosperity?" Journal of Economic
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Krugman, Paul. 2001. "Fear Itself," New York Times, 30
September.
Murphy, Robert P. 2010. "Did Hoover Really Slash
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http://mises.org/daily/4350.
--. 2009. The Politically Incorrect Guide to the Great Depression
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(1) There is no official definition of an economic depression, and
the term depression now refers to a severe recession. It has been
suggested that criteria such as a decline in GDP of at least 10 percent,
an unemployment rate of 10 percent or higher, or a recession lasting two
or more years be used to designate a depression.
(2) While not officially a "great" depression, the
current economic crisis is recognized as the most significant economic
crisis since the Great Depression.
(3) According to the Herbert Hoover Presidential Library and Museum (10/14/2009) http://hoover.archives.gov/exhibits/
Hooverstory/gallery04/gallery04.html.
(4) As quoted in Folsom, 2009, p. 40.
(5) Ohanian is also part of the team, Cole and Ohanian (2004), who
showed that Roosevelt's New Deal policies did not get the U.S. out
of the Great Depression, but indeed were the primary reason for its
persistence. Using a similar model of labor market failure, they showed
that Roosevelt's policies increased real wage rates significantly
above market clearing levels, thus reducing employment and output. Of
course this point has been made numerous times before--by Couch and
Shughart (1998) for example--but this was the first time it was made by
mainstream economists in a major academic journal.
(6) See Woods (2009) on the speedy recovery of this depression.
(7) See Romer and Bernstein (2009)
Mark Thornton is Senior Fellow at the Ludwig von Mises Institute and may be contacted at mthornton@mises.com. An earlier version of this
paper was presented at the 2009 SEA meetings.