Imperial economic policy
The Spanish Empire benefited from favorable factor endowments from its overseas possessions with their large, exploitable indigenous populations and rich mining areas. Thus the crown attempted to create and maintain a classic closed mercantile system, warding off competitors and keeping wealth within the empire, specifically within the Crown of Castile. While in theory the Habsburgs were committed to maintaining a state monopoly, the reality was that the empire was a porous economic realm with widespread smuggling. In the 16th and 17th centuries under the Habsburgs, Spain's economic conditions gradually declined, especially in regards to the industrial development of its French, Dutch, and English rivals. Many of the goods being exported to the Empire originated from manufacturers in northwest Europe rather than in Spain. Illicit commercial activities became a part of the Empire's administrative structure. Supported by large flows of silver from the Americas, trade prohibited by Spanish mercantilist restrictions flourished as it provided a source of income to both crown officials and private merchants. The local administrative structure in Buenos Aires, for example, was established through its oversight of both legal and illegal commerce. The crown's pursuit of wars to maintain and expand territory, defend the Catholic faith, stamp out Protestantism, and beat back the Ottoman Turkish strength outstripped its ability to pay for it all, despite the huge production of silver in Peru and New Spain. Most of that flow paid mercenary soldiers in the European religious wars of the sixteenth and seventeenth centuries, and paid foreign merchants for the consumer goods manufactured in northern Europe. Paradoxically, the wealth of the Indies impoverished Spain and enriched northern Europe, a course the Bourbon monarchs would later attempt to reverse in the eighteenth century.
This was well acknowledged in Spain, with writers on political economy, the arbitristas, sending the crown lengthy analyses in the form of "memorials, of the perceived problems and with proposed solutions". According to these thinkers, "Royal expenditure must be regulated, the sale of office halted, the growth of the church checked. The tax system must be overhauled, special concessions be made to agricultural laborers, rivers be made navigable and dry lands irrigated. In this way alone could Castile's productivity increase, its commerce restored, and its humiliating dependence on foreigners, on the Dutch and the Genoese, be brought to an end."
Since the early days of the Caribbean and conquest era, the crown attempted to control trade between Spain and the Indies with restrictive policies enforced by the House of Trade (est. 1503) in Seville. Shipping was through particular ports in Castile: Seville, and subsequently Cádiz, Spanish America: Veracruz, Acapulco, Havana, Cartagena de Indias, and Callao/Lima, and the Philippines: Manila. There were very few Spanish settlers in the Indies in the very early period and Spain could supply sufficient goods to them. But as the Aztec and Inca empires were conquered in the early sixteenth century, and large deposits of silver found in both Mexico and Peru, Spanish immigration increased and the demand for goods rose far beyond Spain's ability to supply it. Since Spain had little capital to invest in the expanding trade and no significant commercial group, bankers and commercial houses in Genoa, Germany, the Netherlands, France, and England supplied both investment capital and goods in a supposedly closed system. Even in the sixteenth century, Spain recognized that the idealized closed system did not function in reality. Since the crown did not alter its restrictive structure or advocate fiscal prudence, despite the pleas of the arbitristas, the Indies trade remained nominally in the hands of Spain, but in fact enriched the other European countries.
The crown established the system of treasure fleets (Spanish: flota) to protect the conveyance of silver to Seville (later Cádiz). Produced in other European countries, Sevillian merchants conveyed consumer goods that were registered and taxed by the House of Trade, and then sent to the Indies. Other European commercial interests came to dominate supply, with Spanish merchant houses and their guilds (consulados) in both Spain and the Indies acting as mere middlemen, reaping a slice of the profits. However, those profits did not promote a manufacturing sector in Spain's economic development, and its economy continued to be based in agriculture. The wealth of the Indies led to prosperity in northern Europe, particularly in the Netherlands and England, which were both Protestant. As Spain's power weakened in the seventeenth century, England, the Netherlands, and the French took advantage overseas by seizing islands in the Caribbean, which became bases for a burgeoning contraband trade in Spanish America. Crown officials, who were supposed to suppress contraband trade, were quite often in cahoots with the foreigners, since it was a source of personal enrichment. In Spain, the crown itself participated in collusion with foreign merchant houses, since they paid fines "meant to establish a compensation to the state for losses through fraud". It became a calculated risk for merchant houses doing business, and for the crown it gained income that would have otherwise been lost. Foreign merchants were part of the supposed monopoly system of trade. The transfer of the House of Trade from Seville to Cádiz meant foreign merchant houses had even easier access to the Spanish trade.
The Spanish imperial economy's major global impact was silver mining. The mines in Peru and Mexico were in the hands of a few elite mining entrepreneurs with access to capital and a stomach for the risk that mining entailed. They operated under a system of royal licensing, since the crown held the rights to subsoil wealth. Mining entrepreneurs assumed all the risk of the enterprise, while the crown gained a 20% slice of the profits, the royal fifth ("quinto real"). Further adding to the crown's revenues in mining was that it held a monopoly on the mercury supply, used for separating pure silver from silver ore in the patio process. The crown kept the price high, thereby depressing the volume of silver production. Protecting its flow from Mexico and Peru as it transited to ports for shipment to Spain resulted early on in a convoy system (the flota) sailing twice a year. Its success can be judged by the fact that the silver fleet was captured only once, in 1628 by Dutch privateer Piet Hein. That loss resulted in the bankruptcy of the Spanish crown and an extended period of economic depression in Spain.
One practice the Spanish used to gather workers for the mines was called repartimiento. This was a rotational forced labor system where indigenous pueblos were obligated to send laborers to work in Spanish mines and plantations for a set number of days out of the year. Repartimiento was not implemented to replace slave labor, but instead existed alongside free wage labor, slavery, and indentured labor. It was, however, a way for the Spanish to procure cheap labor, thus boosting the mining-driven economy.
The men who worked as repartimiento laborers were not always resistant to the practice. Some were drawn to the labor as a way to supplement the wages they earned cultivating fields so as to support their families and, of course, pay tributes. At first, a Spaniard could get repartimiento laborers to work for them with permission from a crown official, such as a viceroy, only on the basis that this labor was absolutely necessary to provide the country with important resources. This condition became laxer as the years went on, and various enterprises had repartimiento laborers who would work in dangerous conditions for long hours and low wages.
During the Bourbon era, economic reforms sought to reverse the pattern that left Spain impoverished with no manufacturing sector and its colonies' need for manufactured goods supplied by other nations. It attempted to establish a closed trading system, but it was hampered by the terms of the 1713 Treaty of Utrecht. The treaty ending the War of the Spanish Succession, with a victory for the Bourbon French candidate for the throne, had a provision for British merchants to legally sell slaves with a license (Asiento de Negros) slaves to Spanish America. The provision undermined the possibility of a revamped Spanish monopoly system. The merchants also used the opportunity to engage in contraband trade of their manufactured goods. Crown policy sought to make legal trade more appealing than contraband by instituting free commerce (comercio libre) in 1778, whereby Spanish American ports could trade with each other, and they could trade with any port in Spain. It was aimed at revamping a closed Spanish system and outflanking the increasingly powerful British. Silver production revived in the eighteenth century, with production far surpassing the earlier output. The crown reduced the taxes on mercury, meaning that a greater volume of pure silver could be refined. Silver mining absorbed most of the available capital in Mexico and Peru, and the crown emphasized the production of precious metals, which were sent to Spain. There was some economic development in the Indies to supply food, but a diversified economy did not emerge. The economic reforms of the Bourbon era both shaped and were themselves impacted by geopolitical developments in Europe. The Bourbon Reforms arose out of the War of the Spanish Succession. In turn, the crown's attempt to tighten its control over its colonial markets in the Americas led to further conflict with other European powers who were vying for access to them. After a sparking a series of skirmishes throughout the 1700s over its stricter policies, Spain's reformed trade system led to war with Britain in 1796. In the Americas, meanwhile, economic policies enacted under the Bourbons had different impacts in different regions. On one hand, silver production in New Spain greatly increased and led to economic growth. But much of the profits of the revitalized mining sector went to mining elites and state officials, while in rural areas of New Spain conditions for rural workers deteriorated, contributing to social unrest that would impact subsequent revolts.
