for example, may be regarded as imperishable, and its debt as a
permanent institution which it is not bound to liquidate at any
definite period, the interest, unless specially stipulated, being
thus of the nature of transferable permanent annuities. While
an individual who borrows engages to pay interest to the lender
personally, and to reimburse the entire debt by a certain date,
a state may have an entirely different set of creditors every six
months, and may make no stipulation whatever with regard to
the principal. A state, moreover, is the sole judge of its own
solvency, and is not only at liberty either to repudiate its debts
or compound with its creditors, but even when perfectly solvent
may materially alter the conditions on which it originally
borrowed. These distinctions explain many of the peculiarities
of national debts as contrasted with those of individuals though
a nation, like an individual, may by reckless bad faith
utterly destroy its credit and exhaust its borrowing powers.
A well-organized state ought to have within itself the means of meeting all its ordinary expenses; where this is not the case, either through insufficiency of resources or maladministration, and where borrowing is resorted to for what may be regarded as current expenses, a state imperils, not only its credit, but, when any crisis occurs, its very existence; in illustration of this we need only refer to the cases of Turkey in Europe and some of the states of Central and South America. Even for meeting emergencies it is not always inevitable that a state should incur debt; its ordinary resources, from taxation or from state property, may so exceed its ordinary expenses as to enable it to accumulate a fund for extraordinary contingencies. This, it would seem, was a method commonly adopted in ancient states. The Athenians, for example, amassed 10,000 talents in the interval between the Persian and the Peloponnesian wars, and the Lacedaemonians are said to have done the same. At Susa and Ecbatana Alexander found a great treasure which had been accumulated by Cyrus. In the early days of Rome the revenue from certain sources was accumulated as a sacred treasure in the temple of Saturn; and we know that when Pompey left Italy he made the mistake of leaving behind him the public treasury, which fell into the hands of Caesar. In later times, also, the more prudent emperors were in the habit of amassing a hoard. We find that the method of accumulating reserves prevailed among some of the early French kings, even down to the time of Henry IV. This system long prevailed in Prussia. Frederick II., when he ascended the throne, found in the treasury a sum of 8,700,000 thalers, and it is estimated that at his death he left behind him a hoard of from 60 to 70 million thalers. And similarly, in our own time, of the five milliards of indemnity paid by France as a result of the Franco-German War, 150 millions were set apart to reconstitute the traditional war-treasury. The German empire, apart from the individual states which comprise it, had in 1882 a debt of about £24,000,000, while its invested funds amounted to £37,390,000, including a war-treasure of £6,000,000. The majority of economists disapprove of such an accumulation of funds by a state as a bad financial policy, maintaining that the remission of a proportionate amount of taxation would be much more for the real good of the nation. At the same time the possession of a moderate war-fund, it must be admitted, could not but give a state a great advantage in the case of a sudden war. In the case of England, apart from the private hoardings of a few sovereigns, there does not seem to have existed any deliberately accumulated public treasure; before the time of William and Mary English monarchs borrowed money occasionally from Jews and from the city of London, but emergencies were generally met by “benevolences” and increased imposts.
All modern states, it may be said, have been compelled to have recourse to loans, either to meet war expenses, to carry out great public undertakings or to make up the recurrent deficits of a mismanaged revenue. Resources obtained in this way are what constitute national debt proper. Loans have been divided into forced and voluntary. Forced loans can, of course, only be raised within the bounds of the borrowing country; and, apart from the injustice which is sure to attend such an impost, it is always economically mischievous. The loans which the kings of England were wont to exact from the Jews were really of the character of forced loans, though the method has never been used in England in modern times so extensively as on the continent. There the sum sought to be obtained in this way has never been anything like realized. In 1793, for example, a loan of this class was imposed in France, on the basis of income; and of the milliard (francs) which it was sought to raise only 100 millions were realized. In Austria and Spain, also, recourse has been had at various times to forced loans, but invariably with unsatisfactory results. Other methods of a more or less compulsory character have been and are made use of in various states for obtaining money, which, as they involve the payment of interest, may be regarded as of the nature of loans; but the debt incurred by such methods is comparatively insignificant, and some of the methods adopted are peculiarly irritating and mischievous. On the other hand, it has occasionally been attempted to raise voluntary loans by appeals to a nation’s patriotism; the method has been confined almost exclusively to France. After the revolutions of 1830 and 1848 appeals were thus made to the patriotism of French capitalists to buy 5% direct from the government at par, at a time when the French 5% were selling at 80; but the results were quite insignificant. In short, the only economically sound method of meeting expenses which the ordinary resources of a state cannot meet is by borrowing in the open market on the most advantageous terms obtainable. On this normal method of borrowing, loans are divided into different categories, though there are really only two main classes, which may be designated perpetual and terminable. Borrowing in quasi-perpetuity has hitherto been the mode adopted by most states in the creation of the bulk of their debt. Not that any state ever borrows with the avowed intention of never paying off debts; but either no definite period for reimbursement is fixed, or the limit has been so extended as to be practically perpetual, or in actual practice the debt has been got rid of by the creation of another of equal amount under similar or slightly differing conditions as to interest. Of course a state is not bound to retain any part of its debt as a perpetual burden; it is at liberty to liquidate whenever it suits its convenience. This quasi-perpetuity of debt in the case of a state in a sound financial condition involves no hardship upon its creditors, who may at any moment realize their invested capital by selling their titles as creditors in the open money market, it may be at the price they paid, or it may be a little below or a little above it, according to the state of the market at the time. Loans, again, contracted on the terminable principle are of various classes; the chief of these are (1) life annuities, (2) terminable annuities, (3) loans repayable by instalments at certain intervals, (4) loans repayable entirely at a fixed date.
From the time of William III. life and terminable annuities have been a favourite mode in England either of borrowing money or of commuting, and thus gradually paying off, the existing funded debt. At first, and indeed until comparatively recent times, the system of life annuities resulted in serious loss to the country, owing to the calculation of the rate of annuity on too high a scale, a result arising from imperfect data on which to base estimates of the average duration of life. The system of life annuities was sometimes combined in England with that of perpetual annuities, or interest on the permanent debt—the life annuity forming a sort of additional inducement to lenders of limited means to invest their money. At one time the form of life annuities known as tontine was much in vogue both in England and France, the principle of the tontine being that the proceeds of the total amount invested by the contributors should be divided among the survivors, the last survivor receiving the whole interest or annuity. The results of this system were not, however, encouraging to the state. In England, at least, the terminable annuity has been a favourite mode of borrowing from the time of William III.; it has been generally conjoined with a low rate of permanent interest on the sum borrowed. Thus in 1700 the interest on the consolidated debt amounted to only £260,000, while the terminable annuities payable amounted to £308,407. In 1780 a loan of 12 millions was raised
