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The Journal of the American Enterprise Institute

Forgive Us Our Debts

From the January/February 2007 Issue

New research finds that one of the best ways to encourage people to start businesses is to have lenient bankruptcy laws, writes APARNA MATHUR. We need to send the message that it’s O.K. to fail.

Entrepreneurs power the American economy. They enter and exit in a continuous, harmonious process that Joseph Schumpeter in 1942 called “creative destruction,…the essential fact about capitalism.” The toll is heavy. One-third of new businesses die in the first two years, and the majority fail to survive to year four.[1] Despite such odds, the number of new entrants has been steadily increasing over time, and serial entrepreneurs thrive, resurfacing again and again. As a result, small businesses account for more than 95 percent of all enterprises in the United States, and close to 50 percent of all employment.

Much of the national policy debate about small businesses centers, naturally, on firms that survive. Taxes, healthcare costs, and capital subsidies are the concern of businesses that have more than minimal incomes, employees on their payrolls, and investment options. But what about firms that don’t make it? How do we treat entrepreneurs who fail? The latest research suggests that this may be the most important question of all.

Over the years, America’s personal bankruptcy system has served as a hedge against entrepreneurial failure. When businesses fail, entrepreneurs can shield some of their assets from creditors by filing under Chapter 7 of the federal bankruptcy laws, the usual route for consumer filings. In fact, nearly 20 percent of all personal filings list business debts, and the value of business debts represents half the total liabilities of bankruptcy filers. But entrepreneurs are seldom the focus of debates about bankruptcy reform, which rarely distinguish consumers from small business owners.

America’s bankruptcy law is rooted in the “fresh start”—the idea that honest debtors experiencing a spot of bad luck, such as temporary job loss, illness, or divorce, are capable of putting the past behind them and moving on. This concept works especially well for owners of small businesses. By wiping out debts and pardoning failure, American bankruptcy gives the entrepreneur a chance to bounce back.

By wiping out debts and pardoning failure, American bankruptcy gives the entrepreneur a chance to bounce back.

It’s no surprise that these laws—seen as lenient not just by creditors but by much of the general public—have increasingly become a subject of debate in recent times. There is a growing fear that the system is too forgiving of debtors, and there is evidence that such criticism may be valid. The number of Americans seeking relief from creditors each year has more than doubled in the past decade to two million. This steady and rapid rise in bankruptcy filings has coincided with a generally robust economy (only one shallow and brief recession), leading to claims that filing for bankruptcy is simply a ploy to avoid paying debts.

Among the high-profile cases of abuse: O. J. Simpson, the pro-football player acquitted in a 1995 criminal trial of murdering his wife, moved to Florida to protect his extravagant home after losing a civil lawsuit two years later in California that required him to pay $33 million to the victims’ families.

Under pressure from creditor groups, including banks and credit card companies, Congress in 2005 passed the Bankruptcy Abuse Prevention and Consumer Protection Act, which makes debtors jump through many more bureaucratic hoops to get relief. Signing the act, President Bush said, “In recent years, too many people have abused the bankruptcy laws. They’ve walked away from debts even when they had the ability to repay them. This has made credit less affordable and less accessible.” But there is something important missing in the debate on bankruptcy: the implications of such legislation for entrepreneurial behavior.

Does bankruptcy regulation affect entrepreneurship? My own research[2]—along with that of Michelle J. White,[3] professor of economics at the University of California at San Diego—answers with an unequivocal “yes.” Studying variations in laws across the country, we find that the states that more extensively protect the assets of those filing for bankruptcy have more likely probabilities for business start-ups. Thus, the more a state forgives its debtors, the greater the entrepreneurial dynamism in that state.

Another recent study, by Thomas A. Garrett and Howard J. Wall of the Federal Reserve Bank of St. Louis, found that “the decision to become an entrepreneur is related to the homestead exemption”—or the proportion of the value of one’s house that is protected from creditors in a bankruptcy.[4] The researchers looked at the share of each state’s working-age population composed of proprietors of businesses and found that the impact of lenient bankruptcy rules had a “statistically and economically significant” effect on entrepreneurship rates.

Entrepreneurship is often a process of trial and error. No one would accuse Henry Ford of being an unsuccessful entrepreneur. But Ford started two car companies that failed before he struck gold with Ford Motor Company.

Sometimes you fail for no fault of your own. If you know that your home and personal property will be protected no matter what the outcome of your venture, you are more likely to take the risk of starting a business in the first place—and to try again if you don’t succeed. Our research found that states like Florida and Texas, with high personal bankruptcy exemptions, offer a better environment for businesses than Maryland or Virginia, with relatively low exemptions. The right to go bust is an insurance policy against financial disaster.

My work also indicates that states are less likely to see high entrepreneurship rates if their exemptions are lower than those of neighboring states. After all, entrepreneurs are free to move across state lines and take advantage of more lenient exemptions. Just as people vote with their feet by moving to states with lower taxes and better schools, entrepreneurs move to states with better bankruptcy regulations and better business conditions.

A sad irony of the 2005 legislation is that, while many countries are learning from an American system that is seen widely as the world’s most friendly to entrepreneurs, America seems not to be heeding its own lessons.

These findings warn that bankruptcy reform must proceed with care—and especially with a better understanding of the role bankruptcy plays for small businesses. But the 2005 law seems to be moving in the wrong direction. It introduced a slew of new provisions to make it harder for individuals to file for bankruptcy. For instance, only those with incomes below the state median can claim asset protection under Chapter 7; others must either devise a repayment plan out of future earnings or not file at all. Exemptions have been lowered for certain assets, and debtors need to undergo credit counseling prior to filing—a process that can be costly and, for many business owners, useless. A better approach would be to let creditors work through the market to ensure that debtors with bad credit history or risky entrepreneurial ventures are given loans at higher interest rates. This might lower the chances of default. Also, creditors could issue more secured debt to ensure repayment.

If entrepreneurs of failed businesses are denied debt discharge, they may take up safer wage and salary jobs rather than risk starting up a new venture. An unintended consequence of the legislation, therefore, may be the loss of another Henry Ford, Michael Dell, or Bill Gates. And lowering the level of asset protection provided to homes and personal property means even higher stakes for start-ups, deterring would-be entrepreneurs from risking creative destruction. My research shows a modest but unarguably negative impact from some of these changes on small-firm entry decisions.

A sad irony of the 2005 legislation is that, while many countries are learning from an American system that is seen widely as the world’s most friendly to entrepreneurs, America seems not to be heeding its own lessons.

Unlike the U.S., many countries have found the notion of debt discharge alien, and only people who are deemed “hopelessly insolvent” are allowed to file for bankruptcy protection. In most cases, bankruptcy is imposed on the hapless borrower by creditors, assets are seized, and repayment of debt can extend over several years. Until recently, German statutes held the borrower liable for a firm’s debts for nearly 30 years after filing. In Japan, business owners have been known to commit suicide rather than face the shame of a bankruptcy filing.

Do we really want to move toward systems where failure is feared and the entrepreneurial spirit takes a beating at every turn? Or do we want to tell our entrepreneurs that it’s O.K. to fail? History teaches us that entrepreneurship involves a process of learning and experimentation, and failure may well be a crucial part of that process. As a society and an economy, our best asset may be our ability to accept and forgive. So each time we tighten our bankruptcy laws in response to the O. J. Simpsons of the world, we have to wonder if we are not, inadvertently, reducing America’s dynamism.

 
Aparna Mathur is a research fellow at the American Enterprise Institute.


[1]Survival and Longevity in the Business Employment Dynamics Database” by Amy E. Knaup, Monthly Labor Review, Volume 128, Number 5 (May 2005), pp. 50-6; “Redefining Business Success: Distinguishing Between Closure and Failure” by Brian Headd, Small Business Economics, Volume 21, Number 1 (August 2003), pp. 51-61.

[2] Mathur, Aparna, “A Spatial Model of the Impact of State Bankruptcy Exemptions on Entrepreneurship,” Small Business Administration, Office of Advocacy, Research Report No. 261, July 2005.

[3] Fan, Wei and Michelle White (2003), “Personal Bankruptcy and the Level of Entrepreneurial Activity,” NBER Working Paper 9340, Journal of Law and Economics, volume 46(2).

[4] The Cato Journal, volume 26, no. 3, fall 2006, pp. 525-552.

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