Article contents
Municipal Financing of the U.S. Fine Arts Museum: A Historical Rationale
Published online by Cambridge University Press: 03 March 2009
Abstract
Municipal involvement in the finance of fine arts museums raises the question: Just which market failure serves to rationalize this public subsidy? Two contenders are prominent in the literature: decreasing costs and education externalities. The relationship of price to marginal cost provides an operational test to distinguish among the two rationales. Scattered data from the 1880s and 1890s as well as contemporary discussion indicate that, implausible as it may seem now, education externalities constituted the operational justification for the public subsidy.
- Type
- Articles
- Information
- Copyright
- Copyright © The Economic History Association 1986
References
1 Pommerehne, Werner W. and Frey, Bruno S., “The Museum from an Economic Perspective,” International Social Science Journal, 32 (1980), pp. 323–39.Google Scholar
2 Meyer, Karl, The Art Museum: Power, Money, Ethics (New York, 1979), p. 211.Google Scholar
3 “Before the end of the century major galleries had been founded in Washington, Philadelphia, Chicago, Brooklyn, Detroit, St. Louis, Cincinnati, San Francisco, Pittsburgh, and elsewhere. In nearly every case they were governed by self-perpetuating private boards, and in time art museum trusteeship was synonymous with wealth,” Meyer, The Art Museum, p. 28.Google Scholar
4 The federal government has entered very recently indeed with “the establishment, in 1977, of the Institute of Museum Services, appropriately contained within the Department of Health, Education, and Welfare. With the creation of the institute, the federal government was subsidizing for the first time at least part of basic museum operating costs” (Meyer, The Art Museum, p. 61). However, the direct federal impact is now relatively large: “A recent survey of art museums and four other types, made for the National Endowment for the Arts, classified all museum income as: 63 percent from the private sector and 37 percent from the public sector.” The public's 37 percent share was distributed as follows: “municipal or county governments (18 percent); state governments (7 percent); federal government (12 percent),”Google ScholarParkhurst, Charles, “Art Museums,” in Lee, Sherman E., ed., On Understanding Art Museums (Englewood Cliffs, 1975), p. 85.Google Scholar
5 Miller, Lillian B., Patrons and Patriotism: The Encouragement of the Fine Arts in the United States, 1790–1860 (Chicago, 1966).Google Scholar
6 Netzer, Dick, The Subsidized Muse (New York, 1973). There are at least two ways in which museums are decreasing cost industries. One relates to the cost to the museum associated with additional viewers, the number of items to be viewed held fixed. The marginal cost to the museum of an additional viewer is small relative to the opportunity cost of the objects to be viewed, and hence average total cost per viewer falls as the number of viewers expands. Even if the output unit is the number of hours per year which the museum is open, or the number of days, a unit more relevant to the cost calculation facing museum managers than the number of visitors per day, marginal cost is well below average fixed cost, and average total cost falls with output. This is the relevant concept of decreasing cost. There is a second sort of decreasing cost, however. Museums conserve the time of viewers by placing objects in proximity to one another. Obviously, then, there is some range over which time-savings to viewers fall as related items are added to the museum's collection. The size of the collection is, also, then, subject to economies of scale. Decreasing cost in this sense plays no part in this paper.Google Scholar
7 Nichols, Donald, Smolensky, Eugene, and Tideman, Nicholaus, “Discrimination by Waiting Time in Merit Goods,” American Economic Review, 61 (06 1971), pp. 312–23.Google Scholar
8 Donors could presumably pay land costs too, but funding from donors alone is likely to be inefficient due to the free rider problem.Google Scholar
9 The Subsidized Muse, p. 15.Google Scholar
10 Nichols, Donald, Smolensky, Eugene, and Tideman, Nicholaus, “Discrimination by Waiting Time in Merit Goods,” American Economic Review, 61 (06 1971), p. 25.Google Scholar
11 Nichols, Donald, Smolensky, Eugene, and Tideman, Nicholaus, “Discrimination by Waiting Time in Merit Goods,” American Economic Review, 61 (06 1971), p. 27.Google Scholar
12 Even if all of Netzer's arguments were to hold they would be insufficient for his purposes. Establishing market failure may be a necessary condition for public intervention (at least to economists), but it is not a sufficient condition (especially to economists). If the argument is to rest on efficiency criteria, it must still be established that benefits exceed costs, including the efficiency costs of tax financing.Google Scholar
13 Gassler, Robert Scott and Grace, Robin, “The Economic Functions of Non-profit Enterprise: The Case of Art Museums,” Journal of Cultural Economics, 4 (06 1980), pp. 19–31.CrossRefGoogle Scholar
14 Nichols, Donald, Smolensky, Eugene, and Tideman, Nicholaus, “Discrimination by Waiting Time in Merit Goods,” American Economic Review, 61 (06 1971), p. 24.Google Scholar
15 Nichols, Donald, Smolensky, Eugene, and Tideman, Nicholaus, “Discrimination by Waiting Time in Merit Goods,” American Economic Review, 61 (06 1971), p. 27.Google Scholar
16 Nichols, Donald, Smolensky, Eugene, and Tideman, Nicholaus, “Discrimination by Waiting Time in Merit Goods,” American Economic Review, 61 (06 1971), pp. 24–25.Google Scholar
17 Nichols, Donald, Smolensky, Eugene, and Tideman, Nicholaus, “Discrimination by Waiting Time in Merit Goods,” American Economic Review, 61 (06 1971), p. 16.Google Scholar
18 Hansmann, H., “Non-profit Enterprise in the Performing Arts,” The Bell Journal of Economics, 12 (Autumn 1981), pp. 341–61.CrossRefGoogle Scholar
19 Education externalities are not mentioned by Pommerehne and Frey, Gassler and Grace, or Netzer.Google Scholar
20 Hamilton, George Heard, “Education and Scholarship in The American Museum,” in Lee, , ed., On Understanding Art Museums.Google Scholar
21 Bazin, Germain, The Museum Age (New York, 1967), p. 249.Google Scholar
22 Taylor, Joshua C., “The Art Museum in the United States,” in Lee, , ed., On Understanding Art Museums, p. 34.Google Scholar
23 Quoted in Alexander, Edward P., Museums in Motion: An Introduction to the History and Functions of Museums (Nashville, 1979), p. 31.Google Scholar
24 Alexander, Museums in Motion, pp. 31–32; and Parkhurst, p. 88.Google Scholar
25 Lerman, Leo, The Museum: One Hundred Years and the Metropolitan Museum of Art (New York, 1969), p. 48.Google Scholar
26 It should also be pointed out that when the MFA moved to its current building at the beginning of the century, half the costs of that building were financed from the capital gain on the original gift parcel from the city. The museum's right to the proceeds of that sale were explicitly approved by the Boston City Council, so the difference in the early roles played by the Boston and New York City governments is somewhat overstated.Google Scholar
27 This entire discussion is drawn from Whitehill, Walter Muir, Museum of Fine Arts, Boston: A Centennial History (Cambridge, Mass., 1970), vol. 1, chapter 6.Google Scholar
28 Banfield, Edward C., The Democratic Muse: Visual Arts and the Public Interest (New York, 1984).Google Scholar
29 Whitehill, , Museum of Fine Arts, Boston, vol. I, p. 201.Google Scholar
30 Lee, On Understanding Art Museums, p. 2.Google Scholar
31 Hamilton, George Heard, “Education and Scholarship in the American Museum,” in Lee, , ed., On Understanding Art Museums, p. 104.Google Scholar
32 U.S. Bureau of the Census, Historical Statistics of the United States, Colonial Times to 1970, Bicentennial Edition, Part 1 (Washington, D.C., 1975), p. 165.Google Scholar
33 These calculations assume that the museum was open 50 weeks per year and that attendance on weekdays was evenly distributed across the days. Data are from Whitehill, , Museum of Fine Arts, Boston, vol. 1, pp. 40–41.Google Scholar
34 Data are from Howe, Winifred E., A History of the Metropolitan Museum of Art, 2 vols. (New York, 1913, 1946), vol. 1, p. 245.Google Scholar
35 Zajac, Edward E., Fairness or Efficiency: Introduction to Public Utility Pricing (Cambridge, Mass., 1978).Google Scholar
36 Ely, Richard T., Problems of Today: A Discussion of Protective Tariffs, Taxation, and Monopolies (New York, 1888).Google Scholar
37 Whitehill, , Museum of Fine Arts, Boston, vol. 1, pp. 40–41, p. 108.Google Scholar
38 Whitehill, , Museum of Fine Arts, Boston, vol. 1, pp. 40–41, p. 119.Google Scholar
39 Whitehill, , Museum of Fine Arts, Boston, vol. 1, pp. 40–41, pp. 129–31. Ely's preference for public ownership to reconcile decreasing costs with public policy is more in accord with European than American practice. Thus, were economies of scale the root source of public funding for museums, the different financing practices on the two continents would be explained. scale the root source of public funding for museums, the different financing practices on the two continents would be explained.Google Scholar
40 Whitehill, , Museum of Fine Arts, Boston, vol. 1, pp. 40–41, p. 117.Google Scholar
41 Whitehill, , Museum of Fine Arts, Boston, vol. 1, pp. 40–41., pp. 241–42. It is because he mentions museums that the emphasis here is on Ely. Virtually all the great economists of the period were concerned with the implications of scale economies, but only Ely also had something to say about museums.Google Scholar
42 Whitehill, , Museum of Fine Arts, Boston, vol. 1, pp. 40–41, p. 240.Google Scholar
43 It also may have contributed to efficiency. Feldstein and Sadka have demonstrated that setting price above marginal cost may efficiently serve a redistribution function. See Feldstein, Martin S., “Equity and Efficiency in Public Sector Pricing: The Optimal Two-Part Tariff,” Quarterly Journal of Economics, 86 (05 1972), pp. 175–87;Google Scholar and Sadka, Ephraim, “On the Optimal Taxation of Consumption Externalities,” Quarterly Journal of Economics, 92 (02 1978), pp. 165–74.Google Scholar
44 Banfield, Edward C., “The Economist's Public Library: A Review of Lawrence J. White, The Public Library in the 1980s: The Problems of Choice,” The Public Interest (Fall 1983), pp. 1138–41.Google Scholar
45 There has been municipal funding for acquisitions in some museums, St. Louis for example (Bazin, The Museum Age, p. 247). There was also a political advantage to barring acquisitions from municipal funding. Commitment to funding acquisitions would have been an open-ended, long-term commitment. Excluding them kept the city's obligation clearly defined and small, relative to both the city budget and the museum's net worth.Google Scholar
46 Walras, Léon, “The State and the Railways,” trans. P. Homes, Journal of Public Economics, 13 (02 1980), pp. 81–100. This article is the translation of a mémoire that Walras wrote in 1875, subsequently lost, and finally recovered sometime in the 1880s. It is a minor masterpiece in public economics.CrossRefGoogle Scholar
47 Walras, Léon, “The State and the Railways,” trans. P. Homes, Journal of Public Economics, 13 (02 1980), p. 85.CrossRefGoogle Scholar
- 11
- Cited by