Peter T. Leeson
I’m grateful to Daron Acemoglu and James Robinson for their most
recent post in our exchange. In it they pose several important questions, two
of which in particular go to the heart of our disagreement about the reason for
pirate democracy and the efficiency of institutions more generally.
Acemoglu and Robinson ask:
Leeson notes that a democratic organization, with a more
equal distribution of political power and better checks on leaders, was
efficient for pirates. Probably right. But the same reasoning suggests that it
would have also been efficient for many other businesses and social and
political organizations. But we see nondemocratic organizations persist in many
of those spheres. So where are the efficient institutions?
I’ve tried to address this question in The Invisible Hook by comparing pirate
ships’ organization to that of the legitimate ships from which pirates were
drawn: 18th-century merchantmen. As Acemoglu and Robinson suggest,
although the former were organized democratically, the latter were not. Indeed,
merchantmen were organized quite “autocratically”—i.e., via appointed officers
endowed with substantial authority over sailors. If democracy was efficient for
pirates, why not for merchantmen too?
The answer, I contend, is that democracy’s cost was far
higher for merchantmen than for pirates.
Merchantmen were organized and outfitted by external financiers—wealthy
landlubbers who had commercial expertise and capital, but weren’t sailors and
thus hired seamen to sail their ships. To make sure crewmembers didn’t shirk,
embezzle cargo, or steal the vessels they sailed on in owners’ absence, owners
appointed officers to monitor and control them. Allowing crewmembers to
democratically elect their officers instead would’ve been extremely costly in
this context. Merchant sailors who could choose their officers democratically
would have an incentive to elect the opposite kind of officer from what owners wanted—the
kind of officer who would let sailors do whatever they pleased, destroying voyages’
profitability.
Pirate ships, in contrast, weren’t organized or financed by
external landlubbers. Pirates stole their vessels jointly: they were both the
owners and employees of their ships. Because of this, democracy’s major
potential cost on merchantmen—the prospect of crewmembers electing lax officers
and thus undermining voyages’ profitability—was absent on pirate ships. Pirates
who elected lax officers, qua employees, would’ve undermined their own interest,
qua owners. Their incentive was therefore to elect the kind of officer that maximized
profit. Consequently, for pirates, democracy was cheap.
Efficient institutions are context dependent. The contexts—and
thus costs and benefits of alternative institutional forms—that pirates and
their legitimate counterparts faced were different. So it’s natural that efficient institutions in these "societies" would differ too.
Exploring differences or similarities in the specific contexts various societies operate in, which in turn generate differences or
similarities in the constraints and prices their members face is, in my view, essential to understanding why we observe a variety of institutors
in the world, but institutions that are the nonetheless efficient.
Moreover, it’s possible to use this approach to evaluate
alternatives to the efficient institutions hypothesis, such as the de facto
power hypothesis put forward by Acemoglu and Robinson. Consider, for instance,
their suggestion that more equal power drove pirate democracy.
As Acemoglu and Robinson point out, “all pirates had
cutlasses.” But pirates weren’t alone in this respect. For example, all sailors
on 18th-century Royal Navy vessels were armed too. Notoriously, however,
Royal Navy vessels were organized autocratically, similar to merchant ships,
not democratically, as were pirates. Or consider privateers, where, again, everyone "had cutlasses," but governance was considerably more democratic than on naval ships yet considerably more autocratic than on pirate ships. At least on the surface, these observations pose a challenge to the de facto power hypothesis. In contrast, the efficient
institutions view can comfortably explain the institutional variation we
observe across floating societies—from pirates, to explorers, to privateers.
The other important question Acemoglu and Robinson raise in
their piece, which goes to the core of our broader disagreement about institutional
efficiency, is the following:
How can we understand, if not as highly inefficient for
economic prosperity and for the majority of the population, regimes such as
North Korea?
Acemoglu and Robinson’s excellent and thought-provoking book, Why Nations Fail, sheds critical light on the reasons for why some countries
languish with very low incomes (while others do not). The point I want to make is
simply that incredibly low income need not imply institutional inefficiency.
In every society the “institutional opportunity set”—i.e.,
range of feasible institutions—is constrained. At least in the short run, a
society’s “history” and “cultural” features, for example, limit the institutional
choices its people can make. Since history and culture vary significantly
across societies, institutional constraints do too. As I’ve argued elsewhere, these
constraints suggest that we should think about institutional efficiency in
terms of constrained, not unconstrained, optima.
Just as it’s not sensible to reason from the fact that I own
a used Subaru instead of say, a clearly “superior” car, such as a Porsche, to
the conclusion that my automobile choice is “inefficient,” I don’t believe it’s
sensible to reason from the fact that in some societies we observe “inferior”
institutions and thus low incomes instead of the much higher incomes we know “superior”
institutional arrangements can generate to the conclusion that these
societies’ institutional choices are “inefficient.” My budget constraint prevents
me from owning a Ferrari: a used Subaru is my constrained automobile optimum.
Likewise, institutional constraints can prevent some societies from adopting “superior”
institutions that generate higher incomes: their “inferior” institutional
regimes can reflect constrained institutional optima.
To say an institution is efficient is not to say its
outcomes are ideal, or even that they’re “good.” It’s merely to say they’re the
best that is currently possible given the constraints confronted in a
particular case. Efficient institutions, in other words, are context dependent.