"There are myriad ways in which
individuals adjust to economic downturns that are largely 'unseen' by
politicians and bureaucrats but are nonetheless the basic elements of the
corrective process."
Hoover, Bush, and Great Depressions
Tuesday, January 11, 2011
by Mark
Thornton
[Quarterly Journal of
Austrian Economics (2010)]
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
Frédéric Bastiat called economic harmony.
Furthermore, unhampered markets 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 where
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 for 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 crash. 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 US
history.
In order to get a proper perspective on Hoover, recall
that he had previously served on the War Planning Board in WWI 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 he 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.
- In 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
1920–1921.
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 1920–1921, 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's Papers, 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 workweek
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 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, 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 1929–1930 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 are
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 and frankly my big 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 that 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 George'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 an unsustainable and dangerous institution, which
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 to 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
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 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 JP 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 US Treasury Department
purchased $125 billion in preferred stock in nine US banks.
This is just a rough sketch of 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 Sachs 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 with respect to Hoover is that
while Hoover mainly targeted wage rates and employment, Bush made the
preservation of financial markets his 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."
Larry wrote the article to provide a pedagogical device for economics
students, but academic economists will probably be able to understand it
as well.
Here we examine the case of business cycles where 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, Japan's
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 W.P.A. 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 G.D.P., 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 that 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 (United States), 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 are 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 micromisalignments 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 suggests 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 entrepreneurial-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 are nonetheless the basic elements of the
corrective process. The presence of bailouts turns the attention of
entrepreneurs away from such adjustments and toward the acquisition of
bailouts and other rent-seeking and nonproductive 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.
You 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 Lessons 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.
Mark Thornton is a senior resident fellow at the Ludwig von Mises
Institute in Auburn, Alabama, and is the book review editor for the
Quarterly Journal of Austrian Economics. He is the author of
The Economics of
Prohibition, coauthor of
Tariffs, Blockades, and Inflation: The Economics of the Civil War,
and the editor of The Quotable
Mises, The Bastiat
Collection, and
An
Essay on Economic Theory. Send him
mail. See Mark Thornton's
article
archives.
This article was originally published in the Quarterly Journal of
Austrian Economics, vol. 13, no. 3, pp. 86–100
(2010).
Notes
[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).
[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 United States 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).
References
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New York: Oxford University Press.
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of 1920." Intercollegiate Review (Fall): 22–29.
http://mises.org/daily/4896
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