Who Got to Make Money, and How the Rules Changed
The Senate passed the currency conference report on December 23, 1913. The vote was 43 to 25 20. An earlier version of the bill passed the Senate 54 to 34 25. More senators voted on that earlier version than on the final vote 25. The record does not name the senators who were away 20.

In short
On December 22, 1913, the House voted on a conference report for H.R. 7837. It set the short name of the law as the "Federal Reserve Act" 14. Under the changed bill, railroad bonds could be used as the base for emergency money 2. The speaker said this could not be defended. Such bonds were often sold for more than the roads were really worth 2. Under the changed Federal Reserve Act, country banks had to keep 7 percent of demand deposits as reserves. This was the lowest of the three levels 65. This source describes those levels as they were when the change was made, not in the 1930s 65. After the gold window closed, the dollar fell on currency markets 34. One source says commercial banks can increase the money supply by creating money through lending 26. The money supply goes down when loans are repaid 26. A cited economist says that today there is hardly any visible link between the central bank money base and the money supply 33. After regular trading closed, an exchange-traded fund that tracks the S&P 500 rose 44.
A Big Argument About a Money Bank, 1908–1912
William J. Bryan wrote the Nebraska Democrats' platform. It said no to the Fowler bill and the Aldrich bill 71. It said the federal government should issue and control emergency money 71. In 1912, the Progressive Party said no to the Aldrich bill. They said it would put our money and credit in private hands 74. In 1912, the Democrats also said no to the Aldrich bill and to a central bank 75. Their win in that election ended any chance the Aldrich bill would come back in the 63rd Congress 79.
The evidence does not show how the 1898 Monetary Commission bills listed by E. J. Hill affected the 1913 Act 1.
The Votes in December 1913
The Senate passed the currency bill by a vote of 54 to 34 18. On December 22, 1913, the House voted on a report for H.R. 7837 14. The report named the act the "Federal Reserve Act" 14. Carter Glass, a Democrat from Virginia, sponsored that vote 15.
On December 23, the Senate voted 43 to 25 to pass the bill 2024. Every Democratic senator who was there and voted, including Senator Hitchcock of Nebraska, voted yes 21. Six Republicans also voted yes, and so did Progressive Senator Poindexter 23. Almost 30 senators had left for Christmas vacation. That likely explains why fewer senators voted 22.
The law said only that between eight and twelve Reserve Banks would be set up. An organizing committee would choose how many there would be and where they would go 50.
Rules for Lending Money to Banks, 1916–1921
Section 13 of the Federal Reserve Act lets Federal reserve banks lend money to member banks for up to fifteen days. The loans are backed by eligible paper, United States obligations, or similar collateral 55. The Federal Reserve Board proposed letting reserve banks issue Federal Reserve notes directly, backed by gold deposited with the Federal Reserve agents. Congress rejected this idea 51. Congress also rejected a plan to make Federal Reserve notes legal reserve money for member banks 51.
The 1916 changes let the Board act with a vote of at least five members 54. The Board could let member banks follow one general rule that covers all districts alike 54. A reserve bank cannot rediscount for a member bank when paper from the same maker or indorser is more than ten per cent of the member bank's capital and surplus 58. The Board has no legal power to step in on reserve bank directors deciding whether to discount paper that qualifies, when that paper is offered to them 57.
Rules for How Much Money Banks Must Keep, 1930s
Under the changed Federal Reserve Act, country banks had to keep 7 percent of demand deposits as reserves. This was the lowest of the three levels 65. Reserve city banks had to keep 10 percent of demand deposits as reserves 67. Central reserve city banks, the highest level, had to keep 13 percent 69. These levels show the rules as they were when the law was changed 65.
In June 1936, country banks held 29 percent of the total assets of Fed member banks. Big city banks in New York and Chicago were much larger on average 64. From June 1936 to June 1937, country banks' reserve deposits rose 35 percent, or $350 million. New York's big city banks rose 31 percent 66. In the same year, country banks bought $350 million more in government securities. They also made $305 million more in loans. Even so, their ratio of reserves to assets stayed almost flat 68. Simulations suggest the overall rise in reserve demand was driven by a group of city banks 70.
Bank runs also changed. After the FDIC was made in 1933, there were almost no bank runs. Wilcox says this is one reason bankers did not need to keep huge amounts of extra money after 1934 72. The fall in interest rates can explain 80 percent of the change in extra money during the Great Depression 73.
When Dollars Stopped Being Swapped for Gold, 1971
Plans to break with gold were made in secret. Volcker and others at the Treasury secretly made backup plans for ending gold convertibility starting in the spring of 1971 12. At the August 13 Cabinet Room meeting, the President's August 15 speech was on the list of topics. But the tape log does not say why that date was picked 65. The agenda included the convertibility of the dollar and questions about the price of gold 9.
After that, the dollar fell in money trading 34. People talked about what the August 15, 1971 action did, including the New Economic Policy 8.
Where Things Are Today
Researchers have tested whether a central bank's reserves turn into loans. One study used Federal Reserve QE programs. It found that reserve creation leads to higher total loan growth and more risk-taking 16. Another paper looked at the first round of Bank of England QE purchases in 2009 and 2010. It suggested these may have led to a small but statistically significant increase in bank lending growth 17. Selgin (2017) explains that banks turn excess reserves into required reserves by making loans. Total reserves stay the same 27. Bernanke and Kohn (2016) pointed out that bank lending rose along with banks' reserve holdings after the financial crisis. They used this as evidence that reserves are held in addition to other assets 29. Keister (2016) also argues that reserves are generally held in addition to banks' other assets. They do not replace those assets 31. One article argues that minimum reserve ratios in developed economies are so low that they do not limit money creation by commercial banks. It gives the eurozone ratio as 1% 60. Another document says the Bank of England, and the central banks of Australia, Canada and Sweden, currently have no minimum reserve requirement 61. An economist notes that today there is hardly any visible connection between the central bank money base and the money supply 33. The monetary base also does not have a fixed ratio to the broader money measures M1 to M3 28.
An economist says that today there is hardly any clear link between the central bank money base and the money supply 33. Separately, a fund that follows the S&P 500 went up after regular trading ended 44. Also, bets on artificial intelligence on Wall Street picked up again. Stocks rose late in the day after good results raised trust in the trade that has pushed the bull market up 46. The stock market news says nothing about how money is created. So the cited material alone does not show how money is created today.
Still unknown
The evidence has no Mesopotamian, Egyptian or other ancient records, so whether money began as barter, debt or temple accounting remains an open question here.
The August 1971 logs list the speech but do not explain why August 15 was chosen or what economic data and political pressures drove the choice.
Central bank explainers and academic studies point in different directions on whether reserves limit loans, and this evidence does not settle which account is right.
The internet-economy and digital-payment lanes are thin: no checked platform take-rate, advertising-revenue, stablecoin-reserve or regulatory evidence appears in this set, so how online platforms create and capture money is still unanswered.
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Sources
"and Monetary Commission bills for reform of currency; by E. J. Hill. 1898."Checklist of United States Public Documents 1789-1909: Congressional: to ..., page 1753
"Under this feature of the bill, rail railroad - road railroad bonds can be used as the basis for currency issue, which, to my mind, is absolutely indefensible"Image 7 of St. Landry clarion (Opelousas, La.), August 15, 1908
"When the bill finallX passed the house and senate, it was so amended that any kind of security held by the banks was made the basis for an emergency currency, provided such security should first"Image 7 of St. Landry clarion (Opelousas, La.), August 15, 1908
"Since I attended the meeting of the commission, I have changed my view, and I now believe that it is the sincere purpose of all of the mem members - bers members of the commission, after a careful examination of the financial and banking systems of the old world"Image 7 of St. Landry clarion (Opelousas, La.), August 15, 1908
"The President’s August 15, 1971 economic announcement"NIXON PRESIDENTIAL MATERIALS STAFF Tape Subject Log (rev. 2/24) 1
"President’s speech, August 15, 1971"Cabinet Room #69: August 13-16, 1971 [Tape Subject Log]
"The President's day began at Camp David, Maryland"August 15, 1971
"Effect of August 15, 1971 action"NIXON PRESIDENTIAL MATERIALS STAFF Tape Subject Log (rev. 2/24) 1
"-Convertibility of Dollar"Cabinet Room #69: August 13-16, 1971 [Tape Subject Log]
"A Guest book signed by current visitors (primarily Presidential economic advisors) currently at Camp David for a meeting."August 15, 1971
"President Nixon preparing to deliver a televised address on the economy and economic reforms from the Oval Office."August 15, 1971
"spring of 1971 secretly been preparing contingency plans for removing gold convertibility."One nation under gold, page 410
"On a Sunday night in August 1971, with"One nation under gold, page 410
"TO AGREE TO CONFERENCE REPORT #163 ON H. R. 7837, WHICH PROVIDES THAT THE HOUSE RECEDE FROM ITS DISAGREEMENT TO THE SENATE AMENDMENT AND AGREE TO THE SAME WITH AN AMENDMENT THAT THE SHORT TITLE OF THIS ACT SHALL BE THE "FEDERAL RESERVE ACT.""Voteview
"Sponsor: GLASS, Carter (D-VA)"Voteview
"Consistent with the theory, we document that reserve creation leads to higher total loan growth and increased risk taking."Quantitative Easing and Bank Risk Taking: Evidence from Lending (2015)
"Based on the historical bank-level relationship between deposits and bank lending, our analysis suggests that the first round of the Bank’s QE purchases during 2009-10 may have led to a small but statistically significant increase in bank lending growth."Quantitative Easing and Bank Lending: A Panel Data Approach (2014)
"passed the senate last night by a vote of 54 to 34."Image 1 of The Hattiesburg news (Hattiesburg, Miss.), December 20, 1913
"ROLL GALL RESULTS 54 TO 34"Image 1 of The Wibaux pioneer (Wibaux, Mont.), December 26, 1913
"adopted the currency conference report by a vote of 43 to 25."Image 1 of The Chickasha daily express (Chickasha, Indian Territory [Okla.]), December 23, 1913
"Every Democratic senator present and vot-j Ins, including Senator Hitchcock ot Nebraska, was recorded in favor of the bill."Image 1 of The Wibaux pioneer (Wibaux, Mont.), December 26, 1913
"but almost 30 senators had left for Christmas vacation by the time the final bill came to a vote."History of the Federal Reserve System
"Six Republicans voted for it"Image 1 of The Wibaux pioneer (Wibaux, Mont.), December 26, 1913
"passed the Senate the next day by a vote of 43 to 25."History of the Federal Reserve System
"An earlier version of the bill had passed the Senate 54 to 34"History of the Federal Reserve System
"Geldmengen können durch Geldschöpfung im Rahmen der Kreditvergabe durch Geschäftsbanken erhöht und durch die Tilgung von Krediten gesenkt werden."
"As Selgin (2017, pp.18-20) explains, banks convert their excess reserves into required reserves by creating loans, which increases required reserves and decreases excess reserves, even though the total quantity of reserves remains unchanged."Bank Lending and Interest on Excess Reserves (2018)
"Auch steht die Geldbasis in keinem festen Verhältnis zu den Mengen M1 bis M3."
"As evidence for this proposition, Bernanke and Kohn (2016) point out that while banks’ reserve holdings have increased since the financial crisis, bank lending has increased as well."Bank Lending and Interest on Excess Reserves (2018)
"M0 ist bis auf den Bargeldanteil bei Nichtbanken nicht Teilmenge von M1 bis M3, da Zentralbankreserven nur zwischen Geschäftsbanken als Zahlungsmittel dienen."
"Keister (2016, p.5 emphasis in original), for example, argues that “reserves are, in general, held in addition to banks other assets.”"Bank Lending and Interest on Excess Reserves (2018)
"M0 : Bargeldumlauf plus Guthaben der Kreditinstitute bei der Fed;"
"heute kaum mehr Zusammenhang sichtbar"
"The dollar fell on currency markets"HISTORY OF CENTRAL BANKING IN GREAT BRITAIN AND THE UNITED STATES., page 466
"That an oversold market should rise sharply does not indicate anything regarding crop prospects."Image 11 of Weekly union (Manchester, N.H.), July 24, 1901
"Closing quo- S tations today showed general losses"Image 5 of The Daily Missoulian (Missoula, Mont.), March 6, 1914, (Morning)
"Wall street felt good today and that without material change in the crop or strike situation, Blue Monday was followed by pink Tuesday."Image 11 of Weekly union (Manchester, N.H.), July 24, 1901
"Copper shares were heavy on less favorable trade reports."Image 5 of The Daily Missoulian (Missoula, Mont.), March 6, 1914, (Morning)
"Corn had a heavy fall, and wheat made concessions in price,"Image 11 of Weekly union (Manchester, N.H.), July 24, 1901
"was practically over in less than half an hour and then there were some quick recoveries."Image 9 of The Anaconda standard (Anaconda, Mont.), February 25, 1898, (Morning)
"Total sales, par value, $2,685,000."Image 5 of The Daily Missoulian (Missoula, Mont.), March 6, 1914, (Morning)
"its total purchases being esti estimated - mated estimated at 40,000 shares, or 100,000 shares in two days."Image 9 of The Anaconda standard (Anaconda, Mont.), February 25, 1898, (Morning)
"The stock markets here were dull to-day, be being - ing being depressed by New York and Paris."Image 9 of The Anaconda standard (Anaconda, Mont.), February 25, 1898, (Morning)
"An exchange-traded fund tracking the S&P 500 rose after the close of regular trading."Stock Market Today: Dow, S&P Live Updates for October 21 - Bloomberg
"The sensational fall in stocks to-day unquestionably had con considerable - siderable considerable influence on wheat"Image 9 of The Anaconda standard (Anaconda, Mont.), February 25, 1898, (Morning)
"Wall Street’s wagers on artificial intelligence regained traction, with stocks rising in late hours as solid results bolstered confidence in the trade that has powered the bull market."Stock Market Today: Dow, S&P Live Updates for October 21 - Bloomberg
"Tesla Inc. ’s profit beat estimates, assuaging worries about increased investments into new areas such as AI."Stock Market Today: Dow, S&P Live Updates for October 21 - Bloomberg
"Accordingly, on September 7, 1916, an amendment to the Reserve Act was passed according to which such advances were to be permitted in cases where the member bank's note was limited to fifteen days' maturity and in cases where the collateral consisted either of the kind of paper eligible for rediscount or of Government securities."The development of federal reserve policy., page 376
"is not ehgible for rediscount, even though it may be secured by paper which is itself eligible for rediscount."Commercial banking practice under the Federal Reserve Act, page 200
"The FederalReserve Actspecified onlythatbetweeneightandtwelveReserve Banksweretobe established, withtheirnumberandlocations determinedby anorganizing committee."National Monetary Policy by Regional Design: The Evolving Role of the Federal Reserve Banks in Federal Reserve System Policy (1998)
"It proposed an amendment which would permit reserve banks to issue Federal Reserve notes directly against the deposit of gold with the Federal Reserve agents. This suggestion was rejected by Congress together with another proposal that the Federal Reserve notes should be made legal reserve money for member banks."The development of federal reserve policy., page 376
"The mere fact that a borrower on a given note is a cotton factor does not of itself render that note ineligible since its eligibility is a matter to be determined by the use to which the proceeds of that particular note are put."Commercial banking practice under the Federal Reserve Act, page 200
"The FederalReserve Act,however, provided little guidance on how the rate was tobedetermined, statingonly that eachReserve Bankis authorized"National Monetary Policy by Regional Design: The Evolving Role of the Federal Reserve Banks in Federal Reserve System Policy (1998)
"Upon the affirmative vote of not less than five of its members the Federal Reserve Board shall have power, from time to time, by general ruling covering all districts alike, to permit member"The development of federal reserve policy., page 376
"to its member banks on their promissory notes for a period not exceeding fifteen"Commercial banking practice under the Federal Reserve Act, page 200
"bankcould re-discountshort-termcommercialloans withtheirFederalReserveBank, and"National Monetary Policy by Regional Design: The Evolving Role of the Federal Reserve Banks in Federal Reserve System Policy (1998)
"The Federal Reserve Board has no power to interfere with the discretion given or the responsibility imposed by law upon the directors of a Federal Reserve Bank with respect to passing upon the merits of eligible paper oflered for discount."The development of federal reserve policy., page 376
"amounts to a total of more than ten per cent, of the unimpaired capital and surplus of that bank"Commercial banking practice under the Federal Reserve Act, page 200
"Die irreführende, aber weit verbreitete Vorstellung eines Geldschöpfungsmultiplikators , der besagt, dass aus Zentralbankgeld ein Vielfaches an Giralgeld geschöpft werden könne, wurde zwar von Zentralbanken in verschiedenen Publikationen hinreichend widerlegt"Mindestreserve
"dass sie keine begrenzende Wirkung auf die Geldschöpfung durch Geschäftsbanken haben."
"Zentralbanken einiger Länder, wie Australien, Kanada, Großbritannien oder Schweden, fordern zurzeit keine Mindestreserve."Mindestreserve
"Sie ermöglicht es der Monetären Autorität, die Geschäftsbanken bei ihrer Kreditverteilung von ihren eigenen Krediten bei der Monetären Autorität abhängig zu machen"
"had not exercised was limited to central reserve city banks. Requirements against demand deposits of these"Monetary, credit, and fiscal policies ; A compendium of materials on monetary, credit, and fiscal policies, page 530
"Country banks accounted for 29 percent of the total assets of Fed member banks in June 1936."Did Doubling Reserve Requirements Cause the Recession of 1937-1938? A Microeconomic Approach (2011)
"For country banks 7 per cent. of demand deposits and 3 per cent. of time deposits."AMERICAN BANKERS ASSOCIATION, page 948
"The reserve deposits of country banks with the Fed rose 35 percent ($350 million) between June 1936 and June 1937, compared with a 31 percent increase for New York’s central reserve city banks."Did Doubling Reserve Requirements Cause the Recession of 1937-1938? A Microeconomic Approach (2011)
"For Reserve city banks 10 per cent. of demand deposits and 3 per cent. of time deposits."AMERICAN BANKERS ASSOCIATION, page 948
"Moreover, country banks increased their holdings of government securities by $350 million and their loans by $305 million"Did Doubling Reserve Requirements Cause the Recession of 1937-1938? A Microeconomic Approach (2011)
"For Central Reserve city banks 13 per cent. of demand deposits and 3 per cent. of time deposits."AMERICAN BANKERS ASSOCIATION, page 948
"As our simulations show, country banks’ reserve demands remained flat because the fundamental determinants of their reserve demands did not prompt them to increase their reserves."Did Doubling Reserve Requirements Cause the Recession of 1937-1938? A Microeconomic Approach (2011)
"We oppose the Aldrich bill and the Fowlerbill, and believe that, in insofar - sofar insofar as the needs of commerce re require - quire require an emergency currency, such currency should be issued and con controlled - trolled controlled by the federal government"Image 2 of The Roswell daily record (Roswell, N.M.), March 7, 1908
"After the creation of the FDIC, there were almost no bank runs."Excess Reserves in the Great Depression (1984)
"The fall in interest rates can account for 80 percent of the movement of excess reserves during the Great Depression."Excess Reserves in the Great Depression (1984)
"We are opposed to the so-called Aldrich currency bill, because its provisions would place our currency and credit system in private hands, not subject"The Progressive Party and Democratic-Corporatism: The 1912 Progressive Party Platform
"We oppose the so-called Aldrich bill or the establishment of a central bank,"NBER WORKING PAPER SERIES
"We oppose the so-called Aldrich bill or the establishment of a central bank,"Theodore Roosevelt, the Election of 1912, and the Founding of the Federal Reserve (2024)
"while calling for a “systematic revision of our banking laws”"NBER WORKING PAPER SERIES
"while calling for a “systematic revision of our banking laws”"Theodore Roosevelt, the Election of 1912, and the Founding of the Federal Reserve (2024)
"As the Democratic platform rejected the idea of a central bank generally and the Aldrich Plan specifically, the Democratic Party sweep in the 1912 election eliminated any chance of the Aldrich bill being reconsidered in the 63rd Congress."NBER WORKING PAPER SERIES
"As the Democratic platform rejected the idea of a central bank generally and the Aldrich Plan specifically, the Democratic Party sweep in the 1912 election eliminated any chance of the Aldrich bill being reconsidered in the 63rd Congress."Theodore Roosevelt, the Election of 1912, and the Founding of the Federal Reserve (2024)
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