Right. I forgot that the US started as a Confederation with these Articles serving as its first constitution for 11 years (1777-1788). What were the main economic issues, how were they related to the Articles of Confederation, and how did the new Constitution fix it?
The economic problems were two-fold. The war years were dominated by massive currency inflation and debt creation. Then, the post-war years were wracked by the deflationary blow-back from the previous currency inflation and the huge pile of economically choking debt that became a political football over which Federalists and Anti-Federalists struggled.
Inflation and Debt Creation
By the end of the war, Massachusetts’ total debt was nearly £1.5 million; Rhode Island, about $0.5 million; Connecticut, over $3.75 million; Pennsylvania, over £4.6 million; Virginia’s over £4.25 million. As a result, payment of interest on the debt amounted to an overwhelming proportion of the state budget, and one estimate is that 50–90 percent of state expenditures went for this purpose: out of South Carolina’s total budget of roughly £104,000 in 1786, over £83,000 went to pay interest on the debt; of Virginia’s budget of roughly £256,000 in 1784, over £207,000 went to payment of interest.
These numbers can be expressed roughly terms of per capita values. In 1774 New Englanders had a per capita income of about £0.7 while the Upper South states, which included Virginia, per capita income was £1.0. With Massachusetts having a population of slightly under 250,000 people and Virginia being slightly under 450,000 (over half being slaves) to retire the war debt would require in both locations over 90 years of a 100% tax rate (assuming no economic growth.) Obviously, these were horrific numbers just in regard to the debt, but there were additional problems as well.
During the Revolutionary War, vast amounts of paper money had been printed as part of a chaotic effort to finance the war. By the end of 1775, just six months after the Battle of Bunker Hill and with formal independence still another six months in the future, Congress had already increased the nation's money supply by 50 percent in less than a year, and state paper issues had already begun in New England. As paper money issues flooded the colonies, the dilution of the value of each dollar caused prices in terms of paper money to increase radically.
Continental paper was issued by Congress at an accelerating rate: in 1775, $6 million; 1776, $19 million; 1777, $13 million; 1778, $64 million; 1779, $135 million. This was an extreme monetary inflation – a total issue of over 235 million new dollars in a five year period superimposed upon a pre-existing money supply of $12 million representing an increase of over 1,900 % in just five years.
Depreciation of the paper money proceeded inexorably along with the frenzied increase in its quantity. Thus in December 1776, the Continentals were worth $1-$1.25 in gold; in October 1777, the value had fallen to 3 to 1; in December 1778, to 6.8 to 1; and in December 1779, to the negligible 42 to 1. By April 1781, the Continentals were virtually worthless, exchanging on the market at 168 paper "dollars" to one dollar in coin; thus arose the phrase to describe something of minimal value as “
not worth a Continental.”
As the Continental currency collapsed, the Continental Army turned to theft – seizures of goods – to supply what the distorted market did not, and thus scarcely endeared itself to the populace being confiscated. To "pay" for the impressments, the army quartermaster and commissary departments issued paper tickets, or "certificates," which then flooded the country. State governments also turned increasingly to impressment of goods, and "paid" for the seizure with their own welter of certificates. The famous Yorktown campaign where the British finally gave up was financed almost completely by federal and state impressment certificates. Even apart from state issues, federal certificates issued during the war amounted to another $200 million addition to the money supply. The certificates, which didn't even pay interest, rapidly depreciated to almost nothing. In effect, they were just another form of paper money.
By 1779, nothing could conceal the obvious fact of runaway paper depreciation and monetary breakdown. When the state governments tried to impose taxes in order to retire old Continental paper according to scheme devised in March 1780, Americans balked. Citizens of the various states insisted on paying their taxes in the nearly worthless certificates that had been issued, so the state governments found it impossible to retire the old Continentals in an “orderly” fashion. The scheme to prop up and retire Continental paper had proved a total failure; the value of the paper money soon collapsed completely and the Continentals began to pass out of circulation. Before long they could hardly be found; and if they were used they passed at less than 500 to 1 in gold dollars.
Deflation and the Burden of Debt
The contraction of the swollen mass of paper money, combined with the resumption of imports from Great Britain after the war, cut prices by more than half in a few years. This had the effect of increasing the relative burden of the debt and raised the political stakes of how to deal with since unlike the paper money, Congress did not allow it to pass out of existence.
Over time, especially as questions arose about how to retire this debt that was being allowed to linger became a growing political issue, federal debt instruments moved from their original owners to brokers and speculators who bought at steep discounts, the concentration of holdings sharply increased. In Massachusetts, original holdings of federal securities generally amounted to less than $500 for any one person; but by 1790, the top 7 percent of all subscribers owned 62 percent of the federal debt, while the lowest 42 percent of holders owned less than 3 percent of the debt. Sixty-one percent of the securities were owned by citizens of Boston.
Similarly in Pennsylvania, 3 percent of the holders owned 40 percent of the securities and 9 percent of the holders held 61 percent of the debt. Again, the great bulk of public securities had been transferred by the late 1780s to a relatively few large speculators. The story was similar in Maryland, Rhode Island and other northern states where the much of debt was owned. The concentration of the debt into relatively few hands created a special interest group stood to profit handsomely if the debt was to be repaid at full face value rather than the depreciated price for which the current owners had paid for it. Members of that special interest group would soon be loud supporters of the Constitution and its economic funding authority.
The disorder state of the American economies impacted the soldiers as well as the citizenry. Resulting from Washington's creation of a conventional army, the officer core often thought of itself as a professional class. They aspired for the standard European practice of half-pay pensions for life after the war; and in the fall of 1780, the controlling nationalists in Congress, eager themselves to establish an officer caste and a permanent standing army as an integral part of their nationalist plans, promised half-pay for life to the officers. The famous 1873 Newburgh Conspiracy was the result where discontented officers and centralizing nationalists sought to manipulate the army to pressure Congress.
Ron Chernow in his biography of Alexander Hamilton noted:
“The provisional peace treaty raised the unsettling prospect that the army might disband without officers receiving either back pay—as much as six years owed, in some cases—or promised pensions.”
So not only was the army not being paid (Chernow commented that,
“some soldiers had been left so indebted by the fighting and the devalued currency that they feared they would be jailed upon their discharge from the army”) but officers’ vision of a future career of pay and respect was threatened at well. Washington squashed the whole effort – insurrection would only
“open the floodgates of civil discord and deluge our rising empire in blood” – in which Alexander Hamilton had played his usual calculating role toward centralization, although this time he was more subtle in his maneuvering efforts as getting on the wrong side of George Washington was not advisable.
Chernow commented on Washington’s view:
“‘More than half the perplexities I have experienced in the course of my command, and almost the whole of the difficulties and distress of the army, have their origin here,’ Washington wrote of congressional weakness. At the same time, Washington saw a certain Machiavellian streak in Hamilton and bluntly told him of grumbling in the army about congressmen who tried to use the soldiers as ‘mere puppets to establish continental funds.’ He lectured Hamilton: ‘The army…is a dangerous instrument to play with.’ Washington must have seen that Hamilton, for all his brains and daring, sometimes lacked judgment and had to be supervised carefully. “
The war-driven expansion of the American economy exacerbated by the paper money and credit expansion triggered an economic contraction that in the immediate postwar period and brought a serious depression in mid-1784 and 1785. Murray Rothbard, whom I mentioned previously, detailed the economic backbiting:
“As early as July 1783, a group of manufacturers from Philadelphia met to petition the Assembly for protection against foreign imports. This was followed the following year by a group of Boston manufacturers who submitted a similar plea. During the depression year of 1785, the urban artisans banded together in earnest. The Boston manufacturers in twenty-six trades formed The Association of Tradesmen and Manufacturers of the Town of Boston in the spring of 1785 to agitate for a protective tariff in their state, and they were followed by the formation of a General Committee of Mechanics in New York, which soon merged with the Manufacturers Society of New York to fight for protection. Mechanics from Philadelphia, Baltimore, Providence, and Charleston were also active though not formally organized. In particularly hard-hit New England, the town of Nantucket actually asked the state legislature in 1785 for permission to secede and rejoin Great Britain in order to try and regain prosperity. In Philadelphia, the master cordwainers, the shoemakers of the city, decided in March 1785 to engage in concerted economic pressure to try and block further imports of boots and shoes.
By 1786, indeed, virtually every state had passed a navigation law against British shipping…
…Typical of the eastern mercantile oppression over the mass of citizens and farmers was the imposition of excise taxes, which harmed the bulk of consumers. Thus, the tax on spirits (e.g., cider brandy) distilled from one’s own apple orchard was twice the level of the tax on New England rum: a clear privilege to the Boston and other eastern merchants over the western farmers. Tax oppression upon the Massachusetts people was enormous, and the courts ruthlessly threw those who could not pay into jail. Tax defaulters’ property was seized, but in the time-honored way of neighborhood solidarity, local mobs prevented anyone but the owner from bidding for the property.”
This chaotic situation fueled a widening belief in the futility of the Articles of Confederation when a more accurate analysis would point to financial mistakes already made rather than to a lack of authority. Whatever anyone thinks about the Federalist-Anti-Federalist contention, the primary drivers of the struggles of the Confederation were the depressed state of the post-war economy, debt owed to foreigners, and questions about what to do with the massive overhang of debt instruments held by American speculators, who eventually became no small element of the Federalist Party.