Silver is the instrument and measure of commerce in all the civilized and trading parts of the world.
It is the instrument of commerce by its intrinsic value.
The intrinsic value of silver, considered as money, is that estimate which common consent has placed on it, whereby it is made equivalent to all other things, and consequently is the universal barter, or exchange, which men give and receive for other things they would purchase or part with, for a valuable consideration; and thus, as the wise man tells us, money answers all things.--John Locke (1695) "Further Considerations Concerning Raising the Value of Money"
It is no doubt a bit odd to read that X is intrinsic of Y and that X is (a) an estimate of Y (b) and it (the estimate) is product of common consent. But it is less odd when we remind ourselves that X is not the intrinsic value of silver as such, but the intrinsic value of "silver, considered as money." And money here is a mechanism for the (possible) buying and selling of infinite diversity of (possible) goods.
In commenting on this passage, and Further Considerations more generally, Christine Desane writes, in her fascinating (2014) book Making Money: Coin, Currency, and the Coming of Capitalism, Locke's "argument put sovereigns in a place peripheral to international trade." (346) This matters to Desan's more general argument because Locke is the main source of what early in her book she describes as "the conventional creation story"* which she attributes to Marx and Menger alike (27-28).
My interest here is not in the metaphysics of value,+ or the details of the implied mechanism, although both are important topics. Rather, I want to reflect a bit on Locke's underlying political vision. It is easy to imagine why Desan thinks that for Locke the origin of money is a convention (350), and, with a nod to the Two Treatises, "an act of agreement prior even to the political consent that created society" (351; emphasis in Desan; for my analysis of the material in the Two Treatise see here). That is to say, on Desan's interpretation, "money's foundation" is "not political, not legal, but social." (353) By "locating agency over money in the consensus of strangers or people without politics, Locke offered the image of a medium that needed no collective engineering. (353) Since this fits with a certain kind of libertarian interpretation of Locke, one may well assume that Desan gets Locke right even though the argument of her book is that money is the product of collective engineering.
Now, before I criticize this account of Locke, it is important to note that Desan recognizes that Locke's account of the origin of money is not identical to his account of the maintenance of money. In particular, on her treatment of Locke, the sovereign does have one "certifying" (346) role in facilitating the use of money in commerce: "the ascertaining of its quantity by a public mark, the better to fit it for commerce," (quoted on p. 346 of Desan). As Locke puts it, the mark is a kind of "a public voucher, that a piece of such denomination is of such a weight, and of such a fineness, i. e. has so much silver in it." That is to say, for Locke the sovereign's role is to provide a collective good, by guarding over the quality of money and providing a public signal of it.
As an aside, we see here Locke recognizing that the state (bureaucracy/institutions) needs itself to possess high quality skills. And the state's role is to secure common measures (by "public authority warranted") and accurate information about them.
More important, one of the explicit goals of the state is to promote commerce. So, it is a bit odd to treat Locke as depoliticizing money when he articulates his account of money in terms of quite specific political aims (namely the promotion of commerce). But so far, I have said nothing that Desan might disagree with.
More subtly, Desan treats money (and she is here echoing in part Locke's opponent Lowndes) as an "emphatically domestic" affair. (348) It would, thus, be tempting to see in Locke's politics a cosmopolitan project because (and now again quoting Desan about Locke) "exchange was an international matter, and he evidently assumed that money was as well," (349).
And, indeed, in one sense Locke's ideal is cosmopolitan: "perhaps it would have been better for commerce in general, and more convenient for all their subjects, if the princes every-where, or at least in this part of the world, would at first have agreed on the fineness of the standard to have been just one-twelfth alloy, in round numbers; without those minuter fractions which are to be found in the alloy of most of the coin of the several distinct dominions of this part of the world." (partially quoted on p. 346 and p. 348 by Desan) It is not silly to see in Locke as the hypothetical forefather of the Euro (or, at least, the EMU/EMS). But notice that here Locke ascribes to princes/sovereigns political agency. And this is Locke's (counterfactual) ideal.
Of course, in practice this did not happen. But it alerts us that Locke's argument may be more political than Desan (and certain libertarians) let on.** And, in fact, Locke's argument about the role of money in commerce is itself intrinsically political:
By commerce silver is brought in, only by an overbalance of trade.
For, Locke's argument is that a strong currency is connected to a high wage ("greater wages"), productive labor force ("skill and industry"), export driven ("overbalance of trade") political economy, which allows for a growing population and, thereby, a greater military (and more powerful economy).++ What's really new here -- judging by Desan's larger narrative -- is not the strong currency part. (It seems the UK elites were all in on a strong currency for close to half a millenium prior to Locke.) But rather that in virtue of a strong currency one can pay high wages and support a growing population.
This not ad hoc in Locke. It echoes Locke's more instrumental defense of property rights as conducive to consumption and rising standards of living. In particular, it fits quite nicely with the details of Locke's 'Art of government' (recall my treatment of sections 41-42 of Second Treatise, chapter 5): (i) open borders that facilitate immigration, abundance in food, fertility/family friendly policies. (ii) And we can take him to be committed to policies that improve the skill-set of the workforce that is the stimulation of public or private provision of education. In arguing for Jewish emancipation (and immigration), Toland (recall) explicitly picks up on Locke's argument, but rather than focusing on high wages he focuses on falling prices for mass produced goods.
So, let me wrap up. I have not here evaluated Locke's economics. And I also grant that it's possible that Locke was a bourgeois ideologue supporting mercantile Whig elites at the expense of everybody else (Desan relies heavily on Macpherson) with any argument available. But it strikes me that the more natural and consistent reading is that Locke thought that state policy should enrich the population. If done right (by focusing on a hard currency, educating for the right skills, and yes defending property rights) this would lock Britain into a virtuous cycle of growing trade, growing wages, growing populations, and growing political might. This is not a cosmopolitan argument in favor of trade (of the sort Kant or Smith might try out); rather it is a second-best argument for national greatness because the international sphere is characterized by power politics. Since Locke's approach puts Britain on the path of zero-sum, great power politics, it is an open question whether this can be called 'liberal' (cf. 411 in Desan; but that's for another occasion).
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