Governors Shadrach Bond
and Henry Horner
Guiding Illinois through Economic Depressions

Steva Maram
University of Chicago Laboratory School, Chicago

Both Governors Shadrach Bond and Henry Horner served during economic depressions. While each executive faced different types of economic problems, they both used extensive political and financial skills to guide the state. Bond, as the first governor, lacked the constitutional basis for centralized executive authority that Horner enjoyed and had effectively exercised to his advantage. Accordingly, Bond used his negotiating skills to borrow money and create lotteries, while Horner took the more aggressive approach of raising taxes.

The state that Shadrach Bond governed was sparsely populated and poor in resources. Migration to the American West resumed after the war of 1812. That movement of people helped develop the future state of Illinois, but prosperity ended in 1818. A national depression existed until 1825 and stopped the migration westward.

Illinois' admission to the Union occurred prematurely, both economically and politically. "The first state government was as primitive and simple as frontier life itself. Money was a chronic problem," wrote historian Robert P. Sutton. Furthermore, the state's population was sparse, its credit rating impaired, and it lacked decent means of transportation.

Under the first state constitution, the legislature dominated government. Shadrach Bond lacked strong centralized executive powers due to constitutional restrictions, such as no veto power or chance to hold consecutive terms. Nevertheless, Governor Bond tried to use what powers and skills he had to guide Illinois through that difficult period.

From 1818 to 1822 Governor Bond was successful in developing many internal improvements for the state: roads, canals, rivers, and drainage. Although Governor Bond did not have the power to raise taxes, he focused his efforts on convincing the legislature to allow the state to borrow on short term from investors and other sources. He also initiated a lottery that failed due to shortages of money. He objected to the legislature's proposal to create state banks. However, the legislature prevailed. The state banking system eventually failed and became an embarrassment for the young state. Bond's first state-of-the-state address reported a depletion of the treasury. State-of-the-state addresses by succeeding governors have often carried similar messages. Lack of money has been a concern that many Illinois governors have had to cope with in their administrations.

Not all of Governor Bond's initiatives are fondly remembered. He tried to legalize slavery to provide the labor force necessary for such ventures as the salt works near Shawneetown, Illinois.

More than any other early governor, Bond had some success dealing with the legislature. His cooperative nature allowed him to persuade a strong legislature to pass a number of economic measures that helped Illinois survive during its fledgling years. The executive and political power Shadrach Bond lacked, Henry Horner had in abundance. His skills served him well, since no chief executive had a more difficult administration than Horner, the Depression governor. "With a humanitarian's compassion, an extrovert's personality, and a marathoner's determination," in the words of historian Robert Howard, Horner succeeded in guiding the state through turbulent economic times. The economic depression of the 1930s destroyed businesses, banks, and jobs.

Shadrach Bond, the first governor of Illinois, worked to improve the economic conditions of the fledgling state.

Governor Horner's two terms of office from 1933 to 1940 covered a period when people often lacked the basic necessities of life. Horner considered those economic victims his responsibility.

Governor Horner was a skilled politician who was able to use his strong executive powers to win legislative support. Horner's major accomplishment was the revision of the state revenue system. He was successful in passing the first sales tax. That new source of revenue allowed the stale to provide greater unemployment benefits to victims of the Depression. His opponents, and he had many, called

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him "High Tax Henry." In addition, Governor Horner was successful in passing a twenty-million-dollar bond issue to assist the unemployed, to provide tax relief to homeowners and farmers, and to convince the federal government to provide greater financial support to the state. He supported legislation to delay mortgage foreclosures and increase school funding. Governor Horner was also a strong supporter of President Roosevelt's "New Deal." Horner helped promote social security and other welfare programs.

Governor Horner was trained in the Chicago political tradition. He understood political power and used his skills to promote his economic programs. He soundly defeated his opponents in his second term, which allowed him even greater independence in accomplishing his goals.

The greatest similarity between Governors Bond and Horner is that both served during difficult economic periods. Bond was a weak executive due to both constitutional restrictions and his own lack of political power. However, he used his considerable negotiating skills to persuade a strong legislature to accomplish some of his goals, like short-term borrowing to improve the state's transportation systems. Horner had what Bond lacked, constitutional and political power. He used it to create and raise taxes as well as promote programs to help the victims of the Depression. Horner also appeared to be a more compassionate leader. The times were different and required different skills. Both leaders are memorable.—[Solon J. Buck, Illinois in 1818; Robert P. Howard, Illinois: A History of the Prairie State; Robert P. Howard, Mostly Good and Competent Men; Dorrell Kilduff and C. H. Pygman, Illinois; Thomas B. Littlewood, Horner of Illinois; Robert P. Sutton, The Prairie State.]

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