In Institutions, Institutional Change, and Economic Performance, he wrote (p. 58),
players may devise an institutional framework to improve measurement and enforcement and therefore make possible exchange, but the resultant transaction costs raise the costs of exchange. . .The more resources that must be devoted to transacting to assure cooperative outcomes, the more diluted are the gains from trade. . .The more complex the exchange in time and space, the more complex and costly are the institutions necessary to realize cooperative outcomes. Quite complex exchange can be realized by creating third-party enforcement via voluntary institutions. . .ultimately, however, viable impersonal exchange that would realize the gains from trade inherent in the technologies of modern independent economies requires institutions that can enforce agreements by the threat of coercion. The transaction costs of a purely voluntary system of third-party enforcement in such an environment would be prohibitive. . .there are immense scale economies in policing and enforcing agreements by a polity that acts as a third party and uses coercion to enforce agreements. But. . .If we cannot do without the state, we cannot do with it either. How does one get the state to behave like an impartial third party?
Think of two ways to organize a pee-wee baseball league, with players aged 8 to 10. The anarcho-capitalist approach would be to have the players on the teams meet before each game and agree on rules and enforcement mechanisms. The state-based approach would be to have a league commissioner articulate the rules and arrange for their enforcement. If you’ve ever observed 8- to 10-year-olds involved in a discussion over rules, you know that the an-cap league would never play any baseball. The negotiations would occupy all of the time scheduled for the games. What North is saying is that the equivalent would happen to an an-cap economy–it would be buried in the transaction costs involved in trying to enable the sort of market exchanges that we take for granted.
As you know, I am re-reading North because of the overlaps between his work and that of Peter Turchin and other theorists of cultural evolution. I have suggested that North in 1980 anticipated their major insights. The quotation above is from 1990. By that time, some of the seminal papers in cultural evolution had appeared, and North cites them. But no one in the field cites North. If his work were more widely known, I believe that: (a) North would be considered a founder, perhaps even the founder, of the study of cultural evolution; and (b) scholars of cultural evolution would still be mining North’s books for insights.