"Speaking in January at Davos,
US Trade Representative Jamieson Greer said that President Trump’s
protectionism revives the policy first proposed by Alexander Hamilton.
Like countless attempts to justify US protectionism and industrial
policy, Greer’s effort praises Hamilton’s Report on Manufactures (“Report“).
More recently, Scott Bessent,
now holder of a job first held by Hamilton — US Treasury Secretary —
also boasted of the administration’s Hamiltonian creed. Given the fame
of Hamilton’s Report, and Hamilton’s key role in America’s founding, a close look at his Report is warranted.
Impetus for the Report
Requested by the US House of Representatives in January 1790, Hamilton submitted his Report on December 5, 1791. It was the longest and most famous of four major reports submitted to the House by Secretary Hamilton.
According to Hamilton, the House requested
that he devote attention to “the subject of Manufactures; and
particularly to the means of promoting such as will tend to render the
United States, independent on foreign nations, for military and other
essential supplies.” He complied.
America’s Economy Should Have a Strong Manufacturing Sector
The Report opened by making the
case that America would benefit from a larger manufacturing sector
despite America being unusually rich in land. Without naming Thomas
Jefferson, the Report‘s opening was a challenge to Jefferson’s conviction that America should remain a nation mostly of yeomen farmers.
Offering this challenge, Hamilton relied
on Adam Smith (also without naming him) to expose the errors of
physiocracy — that is, the belief that net economic value is produced
only by agriculture. Yet Hamilton went further, arguing that
manufacturing can be more productive than agriculture. In
making this argument, Hamilton was impressive; one might even sense in
it an anticipation of some insights revealed by economists’ marginal
revolution of 80 years later.
Regardless of how much or little Hamilton
intuited of marginalism, he deserves credit for emphasizing the reality
and significance of opportunity costs. To produce some increment of
agricultural output requires that some increment of manufacturing output
not be produced. And that increment of agricultural output is
worthwhile to produce only if its value exceeds that of the foregone
manufacturing output. Thus did Hamilton defuse the arguments of persons
who believed that, to establish the case for keeping America an
agricultural nation, it’s sufficient to point to the positive market
value of agricultural output.
In this way, and some others, Hamilton
revealed a keen ability to think insightfully about economic matters.
Nevertheless, on a full assessment, Hamilton in the Report got
more wrong about economics than he got right. Not content to support
only the removal of artificial barriers in the US against domestic
manufacturing, Hamilton argued strenuously that the government must
actively promote American manufacturing. That promotion should consist
chiefly of subsidies (“bounties”) supplemented by protective tariffs.
Hamilton Respected But Rejected Adam Smith
The renown of Smith’s Wealth of Nations
obliged Hamilton to try to refute Smith’s argument that, in Hamilton’s
summary, “industry, if left to itself … without the aid of government
will grow up as soon and as fast, as the natural state of things and the
interest of the community may require.” For Hamilton, what Smith called
“the obvious and simple system of natural liberty” was too simple, at
least for a young country without much industry. Here’s Hamilton:
Against the solidity of [Smith’s]
hypothesis … cogent reasons may be offered. These have relation to — the
strong influence of habit and the spirit of imitation — the fear of
want of success in untried enterprises — the intrinsic difficulties
incident to first essays towards a competition with those who have
previously attained to perfection in the business to be attempted — the
bounties premiums and other artificial encouragements, with which
foreign nations second the exertions of their own Citizens in the
branches, in which they are to be rivalled.
The first-mentioned impediment to American
manufacturing was Americans’ alleged lack of entrepreneurship.
Habit-bound and excessively risk-averse, too many Americans would stick
with familiar agricultural pursuits and refrain from launching new
manufacturing endeavors. Further discouraging Americans from venturing
into manufacturing were the established competitors abroad who would
out-compete upstart rivals.
For Hamilton, simply being
long-established was, in free markets, a nearly insurmountable
competitive advantage. But in addition, foreign manufacturers might also
practice what we today call “predatory pricing,” as well as enjoy their
own subsidies. Therefore, Hamilton believed that manufacturing would
arise and thrive in America only if the rates of return on these
enterprises were boosted by the government.
Hamilton here forgot his own counsel to
attend to opportunity costs. He simply presumed that whatever additional
manufacturing activities were encouraged by the government would
increase the net value of US economic output. He also ignored both the
knowledge problem (How do politicians know which particular industries
to encourage?) and the public-choice problem (With subsidies and
protection being doled out by politicians, what prevents this doling
from being distorted by interest-group politics?).
Hamilton also had a cramped understanding
of economic competition. (In fairness, this understanding still infects
economics textbooks today.) For him, competition consisted of firms
producing a largely given set of outputs with largely identical
technologies. Although he can’t be faulted for not reading Joseph Schumpeter’s 1942 work on creative destruction,
even in 1791 evidence was growing that the major source of economic
growth was entrepreneur-driven creative destruction. Such innovation
introduced not only new products, but also completely new and improved
means of producing existing products.
In such an innovative economy, being
long-established wasn’t the great advantage that Hamilton assumed it to
be. Just ask, for example, the American millers whose traditional manner
of milling flour was rendered obsolete starting in the 1780s in
Delaware by Oliver Evans‘s automated flour mill.
Hamilton’s Curious Evidence
Attempting to augment his case for active
government encouragement of manufacturing, Hamilton offered curious
evidence. Responding to opponents who insisted that America’s economy
was unfit for manufacturing, he boasted that America’s economy was
already demonstrating an impressive ability to support manufacturing.
Writing about the prospects of profitable
investment in manufacturing, Hamilton said that “it is certain that the
United States offer a vast field for the advantageous employment of
capital; but it does not follow, that there will not be found, in one
way or another, a sufficient fund for the successful prosecution of any
species of industry which is likely to prove truly beneficial.” He
continued: In addition to America’s “multiplying” banks, another ready
source of funding for manufacturing was foreign capital, which he wisely
welcomed as “a precious acquisition.” Indeed, “the attraction of
foreign Capital for the direct purpose of Manufactures ought not to be
deemed a chimerical expectation. There are already examples of it.”
Question for Hamilton: If it was certain
that the US offered vast opportunities for profitable investments in
manufacturing, and if such investment was already occurring, why did
such investment need to be further stimulated by the government?
Hamilton’s inconsistency is evident.
Another example of Hamilton’s
inconsistency is worth mentioning. When he argued for subsidies and
protective tariffs for goods produced with iron, his evidence for the
worth of such government assistance was the fact that such manufacturing
had significantly grown in the US since the American Revolution and was
flourishing. His argument was that this industry deserved protection
precisely because it had proven itself capable and successful.
Presumably, Hamilton would defend this inconsistency by maintaining
that, without government assistance, this industrial growth — and that
of other critical manufacturers — would stop short of its optimal point.
Here’s where Hamilton-as-economist
faltered most seriously. He made the incorrect presumption that markets
fail to generate optimal economic growth because, in the end, he didn’t
appreciate just how effectively resources are allocated by market
signals and incentives — by competitively determined prices, profits,
and losses.
At least for fledgling nations with
relatively little industrial capacity, he believed that intervention
from the top was required.
The Lasting Lesson
Studying the Report on Manufactures
makes clear that Hamilton, contrary to the assertions of Greer and
Bessent, was far from being a protectionist in the mold of Donald
Trump.
Not only was Hamilton’s case for
protection confined to the need to stimulate industrial capacity in a
country lacking such capacity, he also preferred subsidies over tariffs
(because tariffs, unlike subsidies, reduce supplies of targeted goods),
and he welcomed, rather than bemoaned, net inflows of foreign capital.
Nevertheless, Hamilton ultimately had too little confidence in free markets. The late Gordon Wood’s assessment of Hamilton-as-economist is accurate:
Hamilton was so wedded to a hierarchical
view of society that he could only imagine industrial investment and
development coming from the top down. Thus he was incapable of
foreseeing that the actual source of America’s manufacturing would come
from below, from the ambitions, productivity, and investments of
thousands upon thousands of middling artisans and craftsmen who
eventually became America’s businessmen. Hamilton’s historical
reputation as the prophet of America’s industrial greatness therefore
seems somewhat exaggerated. He certainly wanted a powerful and glorious
nation, but he was no more capable of accurately foretelling the future
than the other American leaders."