The Wpa and Federal Relief Policy

by Donald S. Howard,. 879 pgs.

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publication details

Contributors:

Donald S. Howard,

Publisher:

Russell Sage Foundation

Place of Publication:

New York

Publication Year:

1943

Subjects:

United States--Work Projects Administration, Unemployed--United States, Public Welfare--United States, Public Service Employment--United States

Table of contents

	CONTENTS

	TABLES	9
	DIAGRAMS AND ILLUSTRATION	13
	FOREWORD BY	15
	AUTHOR'S PREFACE	19

	PART ONE THE SETTING

I.	"THE PROBLEM OF RELIEF"	25
	Complexity of Relief Problems	25
	Current Public Relief Measures	27
	Numbers Granted Relief	30
	Costs of Relief	35
	Amounts of Relief Grants	40
	Public Relief, an Ancient Heritage	40
	Legal Basis of Public Relief	41
	Conditions Adverse to Development of Relief Programs	43
	A Fundamental Dilemma Underlying Relief Programs	50
II.	GENERAL RELIEF	51
	Legal Foundations of State Programs	52
	Administrative and Financial Arrangements	53
	Form of Relief	57
	Groups Frequently Discriminated Against	57
	Differences Between States in Proportionate Numbers Granted Relief	67
III.	ADEQUACY OF GENERAL RELIEF PROGRAMS	70
	Evidences of Unmet Need	70
	Amounts Granted as General Relief	85
	Standards Governing the Size of Relief Grants	86
	Hands-Off Policy of Federal Government	96

	PART TWO THE WPA AND ITS1 PROGRAM

IV.	THE WPA: WHAT IT IS AND HOW IT WORKS	105
	Legal Basis of the WPA and Its Program	106
	Administrative Organization	108
	Personnel	113
	Administrative Costs	121
V.	THE WPA: WORK AUTHORIZED AND UNDERTAKEN	124
	Permissible Projects	124
	Project Accomplishments	125
	Prohibited Projects	131
	Positive Requirements Regarding Projects	140
	Initiation and Approval of Projects	144
	Sponsors' Contributions	145
	Methods of Operation	150
	Appraisal of Projects	153
VI.	WPA WAGE POLICIES	158
	Basis on Which Payment Is Made	158
	Relationship of Security Wages to Wages Paid in Private Employment	165
	Relationship of Actual Earnings to Scheduled Rates	168
	Relationship of Scheduled Rates to Family Needs	172
	Relationship of Scheduled Rates to Costs of Defined Standards of Living	175
	WPA Earnings Not Assignable	179
	WPA Pay: Wages for Work Done?	179
VII.	EARNINGS AND SUPPLEMENTARY INCOME OF WPA WORKERS	181
	Actual Monthly Earnings	181
	Relationship of Average Earnings to Other Relief and Assistance Benefits	186
	Supplementation of WPA Earnings	198

	VIII. CONDITIONS OF EMPLOYMENT	213
	Hours of Work and Hourly Rates of Pay	213
	Rights to Organize, to Present Grievances, and to Strike	218
	IX. CONDITIONS OF EMPLOYMENT: USE OF AVAILABLE SKILLS VERSUS SKILL FOR THE JOB	228
	Employment in Relation to Skills	228
	Barriers to the Use of Workers' Special Skills	231
	The WPA's Use of Available Skills	232
	Skill for the Job	236
	Special Training Projects	241
	X. CONDITIONS OF EMPLOYMENT: CONCLUDED	244
	A Day's Work for a Day's Pay	244
	Employment Near Workers' Homes	262
	Freedom from Discrimination and "Politics"	264
	Accident Prevention and Compensation	264

	PART THREE ELIGIBILITY
XI.	ELIGIBILITY: AGE, SEX, AND RACE	269
	Age	271
	Sex	278
	Race, Color, and Creed	285
XII.	ELIGIBILITY: POLITICS, CITIZENSHIP, AND SUBVERSIVE ACTIVITY	299
	Politics	299
	Citizenship	303
	Allegedly Subversive Activity	318
XIII.	ELIGIBILITY: MILITARY SERVICE, RESIDENCE, AND FAMILY RESPONSIBILITY	325
	Military Service	325
	Residence	332
	Confinement in Penal or Correctional Institutions	340
	Family Status and Responsibilities	341


XIV.	ELIGIBILITY: NEED	351
	Need, a Prime Consideration	351
	Exceptions to General Policy	356
	Responsibility for Certification of Workers	359
	Appeals from Decisions Made by Co-operating Agencies with Respect to Need	378
XV.	ELIGIBILITY: MEASURING NEED	380
	Need Considered on a Family Basis	381
	The Security Wage as a Measure of Need	382
	Family Budgets as Measures of Need	384
	Treatment of Income	392
	Treatment of Assets	397
XVI.	ELIGIBILITY: RELATIVE NEED	404
	The Needy Versus Recipients of Relief	406
	The Needy with Income Versus Those Without	414
	Dependents of WPA Workers	419
	Departures from Relative Need Policy	421
	Differences of Opinion Regarding Relative Needs	423
XVII.	ELIGIBILITY: SOCIAL SECURITY BENEFITS AND CONTINUED NEED	425
	Eligibility for Social Security Benefits	425
	Continued Need a Condition of Eligibility for Continued Employment	441
XVIII.	ELIGIBILITY: EMPLOYABILITY	448
	Relation to Available WPA Jobs	449
	Relation to Labor Market	451
	Age, Physical and Mental Condition	457
	Responsibility for Determining Employability	466
	Appraisal of Success in Limiting WPA Employment to "Employables"	466
XIX.	ELIGIBILITY: UNEMPLOYED, SEEKING WORK, AND AVAILABLE FOR WORK	472
	Unemployed	472
	Seeking Work and Willing to Work	481
	Available for Work	483

XX.	ELIGIBILITY: UNAVAILABILITY OF OTHER WORK AND AVAILABILITY OF WPA JOBS	486
	Unavailability of Other Work	486
	Availability of WPA Jobs	499
	Effect of Occupation upon Eligibility	501
XXI.	ELIGIBILITY: PERFORMANCE ON THE JOB AND DURATION OF EMPLOYMENT	514
	Performance on the Job	514
	Duration of Employment	515

	PART FOUR NUMBERS EMPLOYED
XXII.	WPA EMPLOYMENT	531
	Fluctuations in Employment	531
	Comparisons with Private Employment	533
	WPA Employment in Relation to Unemployment and to General Relief Cases	535
	Employment by States	537
XXIII.	DETERMINANTS OF VOLUME OF WPA EMPLOYMENT	559
	The Amount of Money Available	559
	Lack of Defined Goals	561
	Difficulties Involved in Forecasting	567
	Considerations Affecting Volume of WPA Employment	570
	Forces Working for and Against More WPA Jobs	576
	Compensating for Bad Guesses of Future Needs	583
XXIV.	DETERMINATION OF MONTHLY AND STATE EMPLOYMENT LEVELS	586
	Determination of Monthly Employment Levels	586
	Distribution of Employment by States	596

	XXV. MEASUREMENTS OF ADEQUACY OF WPA EMPLOYMENT	605
	Estimates of Adequacy	605
	Contentions That the WPA Has Employed Too Many	606
	Contentions That the WPA Has Employed Too Few	606
	Criteria Used in Measuring Adequacy	609
	Presumably Eligible Workers Unassigned to WPA Jobs	610
	Employable Persons Granted General Relief	617
	Increases in Relief Rolls Due to WPA Discharges	625
	Need Among Workers Discharged by the WPA	628
	Establishment of and Demands for State and Local Work-Relief Programs	633
	Demands for Broader Federal Participation in the Total Relief Program of the Nation	640

	PART FIVE THE BROADER ISSUES
XXVI.	FEDERAL RESPONSIBILITY FOR MEETING RELIEF NEEDS	643
	Increased Responsibility for Relief Only One Aspect of the Changing Role of the Federal Government	643
	Considerations Favorable to Enlarging the Role of the Government in Various Social Programs	645
	Factors Having a Special Bearing on Growth of Federal Responsibility for Relief Needs	648
XXVII.	FEDERAL RESPONSIBILITY: MORE EQUITABLE SPREADING OF THE COST	660
	Tendency of the Federal Government to Levy Taxes in Accordance with Ability to Pay	660
	Broader Tax Base of the Federal Government	667
	Uneven Distribution of Resources and Need	672


XXVIII.	FEDERAL RESPONSIBILITY (CONTINUED)	692
	Precedents for Using Resources and Power of the Federal Government to Aid Disadvantaged Groups	692
	Better Understanding Among Federal Officials and Legislators of Existing Needs	701
	The "National Interest" and Federal Responsibility for Relief	706
	Division of Opinion with Respect to Federal Responsibility for Relief	709
XXIX.	"SPECIAL" FEDERAL RESPONSIBILITY FOR NEEDS ARISING FROM UNEMPLOYMENT	715
	The Principle Stated	715
	The Principle Breaks Down	716
	The Principle Is Given a New Lease of Life	717
	Considerations Advanced in Support of "Special" Responsibility for the Unemployed	720
	Opposition to the Principle of "Special" Responsibility	727
	"Special" Responsibility in Operation	731
XXX.	FEDERAL VERSUS STATE AND LOCAL FINANCING AND CONTROL	734
	The Case for Federal Control Over a Work Program	734
	Arguments Raised Against Highly Centralized Control	751
XXXI.	FEDERAL CONTROL AND NATIONAL UNIFORMITY	759
	Local Control a Threat to Continuance of the Work Program	760
	Local Control a Threat to Federal Wage Standards	762
	Non-Discrimination and Humane Administration	765
	Limitations Upon Central Controls	768
	How Much Uniformity Should There Be?	769
	Central Control Not Necessarily Inflexible	770

XXXII.	WORK VERSUS UNEMPLOYMENT	775
	"Jobs for the Jobless"	775
	The Case for Work as Opposed to Idleness	777
XXXIII.	WPA EMPLOYMENT VERSUS DIRECT RELIEF	805
	The Administration's Stand Against Direct Relief for Employable Workers	805
	Position of Congress	809
	Additional Supporters of Work Relief	810
	The Case for Work as Opposed to Direct Relief	811
	Some Counter-Considerations	827
XXXIV.	CONCLUSIONS	836
	The Federal Government and Direct Relief	836
	The Federal Government and Jobs for the Jobless	841
	APPENDIX	853
	INDEX	863

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The Wpa and Federal Relief Policy

by Donald S. Howard,. 879 pgs.

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