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The Wpa and Federal Relief Policy
The Wpa and Federal Relief Policy
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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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