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I don't doubt such uncertainty at all. What meanwhile do you take Greenspan to have meant by "other comparable periods in U.S. banking history". Is he suggesting that there were other free-banking eras? If not, how would any be comparable? What did he mean by "not out of line with"? Usually, that means "a lot more, but not enough for me to be too embarassed to try and deny it." Do you further think that by "bank note holders" he refers to those holding stock or to those who had thought they were holding deposits?Not sure how to make this any clearer for you.
The system of federal rule-making today is indeed elaborate. Because it has to be. Federal rules are designed to meet the needs and protect the interests of multiple stakeholders and other interested parties. Do you think Greenspan would want to steamroller all that in favor of some roughshod, willy-nilly system of rulemaking? His larger point here of course is one that you didn't bother to bold (or even include), namely that while private regulatory organizers sought to provide some level of transparency and protection, their efforts all but universally failed.
Greenspan will of course always be memorialized by what he has termed the biggest mistake of his career -- an assumption that markets were wise enough to regulate themselves. They are not now, and never have been. Otherwise, you'll perhaps want to explain how Greenspan's talking about primitive forms of private bank regulation in the 1850's adds anything at all to earlier described regulatory shortcomings of the free-banking era that existed between the collapse of the second BUS (1836) and the onset of the Civil War (1861).
If you get this far, maybe next go back and try to defend your blown-to-bits claim that there never was any such thing as free-banking to begin with.