Chapter XIII New York at the Outbreak of War

144 EFFECTS OF THE WAR ON MONEY, CREDIT AND BANKING European investors were becoming more cautious in their pur chase of American securities and the United States were increas ingly obliged to provide their own capital for industrial develop ments. As a debtor country accustomed to borrowing largely from foreign capitalists, we felt a drag when foreign invest ments in our securities declined. If Europe would not lend, we could not so readily expand. During the two years preceding the war particularly, France had been unable to make foreign investments as before. The investments which she had been making in the years preceding 1912 had been to a large degree, as we have seen, in Russians, Bulgarians, Argentine securities, Mexican securities and the like, and French investment in Amer ican securities had very largely ceased. With slight expansion, therefore, we were well prepared to meet the shock of the war in striking contrast with France or with Brazil.

In one respect, however, the coming of the war found us unfortunately placed. We were subject to heavy calls from Europe for gold. There had been a drain on New York's gold for some time before. Beginning with 1912 Germany had been accumulating gold in unusual amounts 'and France and Russia began early in 1914 a rapid accumulation of gold. Moreover, from March, 1914, to August, 1914', imports to the United States had substantially exceeded exports for every month-something unprecedented for many years before the war. An excess of imports over exports had not occurred for more than a month at a time for a number of years preceding March, .1914.1 Europe was depressed and had reduced its buy ing. Our imports were not unusually large, but our exports were unusually small. July is normally in any case the time of lowest exports from the United States, while our exports usually grow very large shortly thereafter, culminating in October, November or De cember in very heavy shipments of grain and other agricultural products. It has been a long standing practice of American bankers to tide over the period of low exports in July by drawl See L. C. Sorell: "Dislocations in the Foreign Trade of the United States Resulting from the War," Journal of Political Econol11Y, January, 1916, page 28 (chart).

THE UNITED STATES 145 ing finance time bills on London in payment for imports which they liquidate later by documentary bills 1 drawn on London, connected with our. heavy autumn exports. During July, 1914, the usual volume of these short term finance bills had been drawn and there was a large volume ·of current indebtedness by New York to London as a result. As we have seen, New York .bore the brunt of the heavy selling by frightened European investors of securities at the outbreak of the war. These securities, sold for cash in the New York market, gave rise to an enormous volume of demand in debtedness on the part of New York brokers to their European clients and enormously increased the demand for sight exchange on London. At the same time the shock of the war had demoralized the London foreign exchange market and had interrupted the rela tions between New York and London bankers which would ordinarily make possible the creation of a new supply of finance bills on London with which to make these payments. Ordinarily, New York bankers, if they are willing to pay the interest rates demanded, have large leeway in drawing time finance bills on their London correspondents, which, accepted by these corre spondents, may be discounted in the London market and provide cash funds against which New York bankers may draw. But the credit of the London acceptance houses was heavily shaken by the war and the business of accepting and discounting in London was practically stopped for a time. The Qnly way, there fore~ by which New York banks could increase their supply of sterling exchange was by the actual shipment of gold, and this became impossible after England declared war on Germany and the seas became unsafe for shipping. Under these conditions, exchange rates on London soared to unprecedented heights.

Five, six and even seven dollars a pound were paid in certain cases. These high rates are not representative of an organized market, but merely of the virtual absence of available credits in 1 "Documentary bills" are bills drawn by shippers of goods, accompanied by documents evidencing the fact and value of the shipments, as bills of lading, insurance policies, consular invoices, etc. "Finance bills" are drawn by bankers on bankers.

146 EFFECTS OF THE WAR ON MONEY, CREDIT AND BANKING London and of the necessities of urgent purchasers anxious to honor their obligations in London. In this unprecedented situation, the New York stock exchange was forced to close. . In all its long history this institution has been closed but once before, in the panic of 1873, and then only for a period of ten days. It closed July 31, 1914, for an in definite period and virtually all the other stock exchanges of the United States followed its lead. It was not until November 28, 1914, that it was reopened at all, and then only for bond trading for cash or " regular way" (i.e.) on the daily settlement basis) and at minimum prices fixed by a committee of the stock ex change. On Saturday, December 12, a restricted list of stocks, excluding those in which there was danger of heavy inter national selling, was admitted for cash or'" regular way" trad ing again, with minimum prices fixed by a committee. All stocks were admitted on December 15, 1914, but minimum prices pre vailed for a number of weeks following. All restrictions on prices were finally removed on April 1, 1915.

The stock exchange was in a fairly strong position in July, 1914. Prices had declined since early in the year, and the high prices of 1914 were not high as compared with earlier years. Various uncertainties as to the future of business had led, more over, to a large short interest which constituted a protection when further selling should come, as the shorts would take advantage of further declines to " take profits." There had been a reduced volume of speculation for a number of years. The last preceding year of real stock exchange activity had been 1909, when 214, 000,000 shares were sold. The following table shows a steady decline in share sales from that year: 1909 1910 1911 1912 1913 1914 Shares 214,000,000 164,000,000 -127,000,000 131,000,000 83,000,000 47,000,000 1 Even 1909 had not been a year of extraordinary stock ex change activity. In 1906, 284,000,000 shares had been sold; in 1 Exchange closed for over three months.

THE UNITED STATES 147 1905, 263,000,000; in 1901, 266,000,000. A number of other years had approached 1909 in magnitude. One must go back to 1897 to find a year in which share sales were as low as 1913. The volume of stock collateral loans on /June 30, 1914, in New York City banks was substantially larger than it had been in 1913, if figures for collateral loans of national banks may be taken as representative. The following table will show this: 1 September 1, 1910 . $517,000,000 June 7, 1911..................................... 520,000,000 June 14, 1912.................................... 550,000,000 June 4, 1913..................................... 506,000,000 June 30, 1914.................................... 627,000,000 The quiet selling that had been going on on the part of European investors for some months before the outbreak of the war had evidently led to some expansion of bank collateral loans. None the less, this volume of collateral loans was not alarmingly great, and both the banks and the stock market were in good position to meet any ordinary emergency. New York had at all events one advantage over London and Paris, in that the daily settlement prevailing in New York made it possible to test the solvency of brokers every day and there was no fort night's accumulation of weakness when the shock came.

But the emergency that came was one that could not be met. In certain securities held in large quantities by European in vestors the selling was terrific and the declines in prices were startling. Among these were: High, 1914 July 30; 1914 Decline Atchison 100% 890 10~ Baltimore and Ohio Ct.. ••••• 98% 72 26~ Brooklyn Rapid Transit 94~ 79 150 Canadian Pacific ............•...... 220~ 156% 64% Chesapeake and Ohio........ . . . . . . . 68 410 260 St. Paul 107% 85 22% U. S. SteeL........................ 675i 50~ 16~ 1 Comptroller's Report, 1914, Vol. 2, page 736. The collateral loans of national ban\<s in New York City are not fully typical of total stock and bond collateral loans. First, obviously because they do not include the State banks, trust companies or private banks, and, second, because they do include certain loans on "other collateral security," including warehouse receipts, chattel mortgages, etc. On the whole, however, these other elements are of comparatively minor importance in New York and it is probable that the stock and bond collateral loans of the trust companies and State banks tend to expand and contract under the same conditions that those of the national banks do. It is interesting to note that the figure for 1913 is lower than the figure for 1904 (538,000,000). Vide Value of Money, page 511.

148 EFFECTS OF THE WAR ON MONEY, CREDIT AND BANKING The general averages also showed startling declines. Twenty five typical railway stocks had an average price of 78.18 at the end of June, 1914. They declined to 6u.78 for their closing price in July. Twenty-five typical industrial stocks which had a clos ing price of 58.19 in June 1914, dropped to 48.76 by the end of July. The combined average of these rails and industrials dropped from 68.18 at the end of June to 57.77 by the end of July. The decline in bond prices was less dramatic. Forty representative bonds had as an average closing price at the end of June 86.56, and their price when the stock exchange closed was 82.73. 1 The actual volume of sales made in July was not extraordi narily large as compared with many other periods. On Tuesday, July 28, when a great break came in the list, 1,020,000 shares were sold. The stock exchange has on several occasions ex ceeded two million shares, with much less change in prices. The significant points in connection with this selling, however, are first, that it was selling by investors rather than by speculators, and, second, that it was selling by foreigners rather than by domestic sellers. A moderate amount of selling by investors may make a much greater difference in the course of security prices than enormous sales by speculators, since the speculators selling short remain a potential buying power in the market and since the short seller provides loan funds to the bull, from whom he borrows the stocks which he must deliver. The investor, how ever, who sells withdraws funds from the loan market. The case is intensified when the seller is a foreign investor, because the foreigner not merely withdraws funds from-the loan market, but tends also to withdraw gold from the reserves of the banks, restricting, temporarily, their ability to expand loans to protect the market. 2 With New York's gold supply already subject to calls from Europe for the other reasons already mentioned, this 1 The securities chosen for the figures are those used by the New York Times Annalist.

2 This is much less true in London or Paris than it was in New York before 1917, since New York was subject to legal reserve requirements. The amendments to the Federal Reserve Act in 1917 have virtually done away with legal reserve requirements, as we shall see in the chapter, infra, on the federal reserve system.

THE UNITED STATES 149 further cause for a drain placed the banks in a difficult position when it came to providing funds to sustain the market. The closing of the stock exchange was necessary. Had it remained open another day, the break in prices would have been disastrous. The margins protecting collateral loans at the banks would have been hopelessly wiped out and bank resources tech nically impaired. Both in the interests of the banks and of brokers and brokers' customers, it was imperative that the ex change be closed, and inasmuch as danger to the banks, brokers and the brokers' customers would have involved the whole credit system of the country, it was essentially in the interests of the country that the exchange be closed. The question has been raised as to whether it might not have been advantageously closed a day or two earlier. It is the view of Professor O. M. W. Sprague and Mr. H. G. S. Noble, President of the stock exchange, that it is fortunate that the exchange stayed open as long as it did. Stock prices w·ent low, but not so low that the banks could not stand the strain. The market was pretty thoroughly liquidated. A reopening of the exchange was thus made much easier than would have been the case had stocks remained at a higher level with many sellers anxious to liquidate while the exchange was closed.1 The con trol over selling outside the exchange during the period while the exchange was closed would, moreover, have been much less effective had not the market been thoroughly liquidated. As Mr.

Noble makes clear in his interesting paper, the closing of the stock exchange was accompanied by a rigorous control over auc tion rooms, the curb and all other outside markets, and the volume of security selling was held within very narrow limits indeed during the period the stock exchange remained closed. Apart from the closing of the stock exchange other emergency measures were called for. As has always happened in crises, the New York banks were subject to domestic drains on their 1 O. M. W. Sprague: "Crisis of 1914 in the United States," American Economic Review, September, 1915; H. G. S. Noble: "The New York Stock Exchange in the Crisis of 1914," Garden City, N. Y., Country Life Press, 1915. These two papers are classics of permanent value. The writer is much indebted to both for his interpretation of the situation in New York at the outbreak of the war.

150 EFFECTS OF THE WAR ON MONEY, CREDIT AND BANKING cash reserves in addition to the calls from Europe for gold. During the week ending J'uly 31, the clearing house banks and trust companies in New York lost $56,000,000 in cash reserve, of which $20,000,000 represented withdrawals by American and Canadian banks. 1 Resort was had to the use of clearing house certificates, as had been the case in previous crises. The clearing house certificate is an instrument issued by the clearing house to the banks upon collateral deposited by the bank with the clearing house. It represents a pooling of the credit of all the banks and is good in payments between banks at the clearing house. The bank whose cash reserves are low is thus enabled to protect itself against drains at the clearing house. The clearing house cer tificate, however, is good only in, payments between banks which are members of the same clearing house. It is of no use to a New York bank subject to drain from the outside.

Previous crises have meant that the New York banks have suspended cash payments, but in 1914 there was a further remedy available. The Aldrich-Vreeland Act of 1908 had been designed to enable national banks to issue notes freely in a crisis. This act was to have expired by limitation on July 1, 1914, but the Federal Reserve Act of 1913 fortunately extended it for another year to provide against emergencies pending the inauguration of the federal reserve system, and amended it by' reducing the tax on notes issued under the Aldrich-Vreeland Act from 5 per cent to 3 per cent during the first three months of issue, thereafter increasing it by % per cent a month to a maximum of 6 per cent, where the original act had provided for increases of 1 per cent a month to a maximum of 10 per cent. Certain other restric tions in the original Aldrich-Vreeland Act had been removed. No use had been made of the Aldrich-Vreeland Act prior to this emergency. The very term" emergency currency" had been an obstacle. Banks had feared that it would be a confession of weakness should they' make use of the act. But at the outbreak of the war speedy resort was had to it and the new notes were issued in large volume. Indistinguishable in form from ordi nary national bank notes (except that they were new and clean), _, 1 Sprague, Ope cit., page 517.

THE UNITED STATES 151 they were accepted readily by the people. Banks paying them out were enabled to retain their gold and" lawful money" as reserve. In all, 2,197 of the 7,600 national banks became mem bers of the currency associations which issued these notes. The total amount of the Aldrich-Vreeland notes approved for circu lation was $386,446,215 and the maximum outstanding was $386,616,990 on October 24, 1914. Redemption of this cur rency .began as early as October, 1917. By December 26, re demption had amounted to $217,000,000 and on July 1, 1915, all but $200,000 of the authorized issue had been retired. 1 This emergency currency made it wholly unnecessary for the banks to suspend cash payments and the panic was safely passed with out ~uspension. The crisis of 1914 is unique in our history in that it was wholly due t9 external causes. As we have seen, the internal situation was thoroughly solvent. Writing in the summer of 1915, Professor Sprague was· able to date the end of the crisis in the United States at November, 1914, except for the cotton growing southern States. Cotton was indeed hard hit. The cur rent crop was 16,000,000 bales, a record crop. Demoralized by the prosp~ctive loss .of the European market, cotton broke in price at the sam·e time stocks did, at the e~d of July, and the cotton exchange closed when the stock exchange closed, the closing price being 10.50 cents per pound. The cotton exchange reopened in November, 1916, with quotations at 7.50 cents a pound, while cotton was being sold in the south at 5 to 6 cents a pound. The emergency was real, and under the leadership of the Federal Reserve Board, banks in northern States subscribed a fund of $100,000,000, while southern banks provided $35,000,000 as a fund for cotton loans.. Very little use was made of this fund, however:. A decided increase in the foreign demand for cotton which came early in January, 1915, from Europe b'rought cotton up to 9 cents by the end of January, and 10 cents by the end of February. From that time on, there has been no serious depression through lack of demand at reason able prices in any of the major industries of the United States.

1 Journal of the American Bankers' Association} May, 1916, page 1039.

152 EFFECTS OF THE WAR ON MONEY, CREDIT AND BANKING The general situation regarding commercial credit in the United States has been on the whole surprisingly satisfactory during the war. The outbreak of the war led to a substantial increase in failures, as was to be expected-22,000 in 1915 as against 16,000 in 1913. The number of failures has markedly declined in 1916 and 1917, while for the first nine months of 1918 the figures are even lower. The following figures are taken from Dun's Review of January 5, 1918: Number of Amount of Average Year Failures Liabilities Liabilities 1906 ........................ 10,682 $119,201,515 $11,159 1907 ............... ' ......... 11,725 197,385,225 16,834 1908 ........................ 15,690 222,315,684 14,169 1909 ........................ 12,924 154,603,465 11,963 1910 ........................ 12,652 201,757,097 15,947 1911 ........................ 13,441 191,061,665 14,215 1912 ........................ 15,452 203,117,391 13.145 1913 ........................ 16,037 272,672,288 17,003 1914 ........................ 18,280 357,908,859 19,579 1915 ........................ 22,156 302,286,148 13,644 1916 ......................... 16,993 196,212,256 11,547 1917 ........................ 13,855 183,441,371 13,168 Number of LiabilitiesFailures Assets First 9 mos. of 1918 .......... 8,069 $75,142,781 $122,975,024 CHAPTER XIV Gold, Foreign Trade and Foreign Exchange We have seen that New York had been subject to heavy drains of gold for some time before the war. The excess of exports over imports of gq~d in 1913 was over $28,000,000; to the end of June, 1914, it was $84,000,000; and for the whole of "1914, $165,000,000. 'One factor which complicated the situation in the crisis of 1914 was the fact that New York City had short term obligations maturing to the amount of $100,000,000, of which $80,000,000 were held in England and France. With London exchange almost un-attainable, the city's obligations were in danger of dishonor. To protect the credit of the city, a syn dicate, in which all but four of the 130 banks and trust companies of New York participated, agreed to supply gold or exchange as might be necessary. As a further means of protecting the coun try's reputation for honoring gold obligatio.ns, a gold pool of $100,000,000 was organized under the guidance of the Federal Reserve Board involving the clearing house banks of all the.