The Works Progress Administration (WPA; from 1935 to 1939, then known as the Work Projects Administration from 1939 to 1943) was an American New Deal agency that employed millions of jobseekers (mostly men who were not formally educated) to carry out public works projects, including the construction of public buildings and roads. It was set up on May 6, 1935, by presidential order, as a key part of the Second New Deal.
The WPA's first appropriation in 1935 was $4.9 billion (about $15 per person in the U.S., around 6.7 percent of the 1935 GDP). Headed by Harry Hopkins, the WPA supplied paid jobs to the unemployed during the Great Depression in the United States, while building up the public infrastructure of the US, such as parks, schools, roads, and drains. Most of the jobs were in construction, building more than of streets and over 10,000 bridges, in addition to many airports and much housing. In 1942, the WPA played a key role in both building and staffing internment camps to incarcerate Japanese Americans.
At its peak in 1938, it supplied paid jobs for three million unemployed men and women, as well as youth in a separate division, the National Youth Administration. Between 1935 and 1943, the WPA employed 8.5 million people (about half the population of New York). Hourly wages were typically kept well below industry standards. Full employment, which was reached in 1942 and appeared as a long-term national goal around 1944, was not the goal of the WPA; rather, it tried to supply one paid job for all families in which the breadwinner suffered long-term unemployment.
In one of its most famous projects, Federal Project Number One, the WPA employed musicians, artists, writers, actors and directors in arts, drama, media, and literacy projects. The WPA superseded the work of the Federal Emergency Relief Administration, which was dissolved. Direct relief assistance was permanently replaced by a national work relief program—a major public works program directed by the WPA.
The WPA was largely shaped by Harry Hopkins, supervisor of the Federal Emergency Relief Administration and close adviser to Roosevelt. Both Roosevelt and Hopkins believed that the route to economic recovery and the lessened importance of the dole would be in employment programs such as the WPA.
The WPA was organized into the following divisions:
- The Division of Engineering and Construction, which planned and supervised construction projects including airports, dams, highways and sanitation systems.
- The Division of Professional and Service Projects (called the Division of Women's and Professional Projects in 1937), which was responsible for white-collar projects including education programs, recreation programs, and the arts projects. It was later named the Division of Community Service Programs and the Service Division.
- The Division of Finance.
- The Division of Information.
- The Division of Investigation, which succeeded a comparable division at FERA and investigated fraud, misappropriation of funds and disloyalty.
- The Division of Statistics, also known as the Division of Social Research.
- The Project Control Division, which processed project applications.
- Other divisions including the Employment, Management, Safety, Supply, and Training and Reemployment.
Employment
thumb|left|WPA road development project
The goal of the WPA was to employ most of the unemployed people on relief until the economy recovered. Harry Hopkins testified to Congress in January 1935 why he set the number at 3.5 million, using Federal Emergency Relief Administration data. Estimating costs at $1,200 per worker per year (), he asked for and received $4 billion (equivalent to $ billion in ). Many women were employed, but they were few compared to men.
In 1935 there were 20 million people on relief in the United States. Of these, 8.3 million were children under 16 years of age; 3.8 million were persons between the ages of 16 and 65 who were not working or seeking work. These included housewives, students in school, and incapacitated persons. Another 750,000 were person age 65 or over. The goal was to pay the local prevailing wage, but limit the hours of work to 8 hours a day or 40 hours a week; the stated minimum being 30 hours a week, or 120 hours a month.
Being a voter or a Democrat was not a prerequisite for a relief job. Federal law specifically prohibited any political discrimination against WPA workers. Vague charges were bandied about at the time. The consensus of experts is that: "In the distribution of WPA project jobs as opposed to those of a supervisory and administrative nature politics plays only a minor in comparatively insignificant role."
Projects
WPA projects were administered by the Division of Engineering and Construction and the Division of Professional and Service Projects. Most projects were initiated, planned and sponsored by states, counties or cities. Nationwide projects were sponsored until 1939.
The WPA built traditional infrastructure of the New Deal such as roads, bridges, schools, libraries, courthouses, hospitals, sidewalks, waterworks, and post-offices, but also constructed museums, swimming pools, parks, community centers, playgrounds, coliseums, markets, fairgrounds, tennis courts, zoos, botanical gardens, auditoriums, waterfronts, city halls, gyms, and university unions. Most of these are still in use today. The amount of infrastructure projects of the WPA included 40,000 new and 85,000 improved buildings. These new buildings included 5,900 new schools; 9,300 new auditoriums, gyms, and recreational buildings; 1,000 new libraries; 7,000 new dormitories; and 900 new armories. In addition, infrastructure projects included 2,302 stadiums, grandstands, and bleachers; 52 fairgrounds and rodeo grounds; 1,686 parks covering 75,152 acres; 3,185 playgrounds; 3,026 athletic fields; 805 swimming pools; 1,817 handball courts; 10,070 tennis courts; 2,261 horseshoe pits; 1,101 ice-skating areas; 138 outdoor theatres; 254 golf courses; and 65 ski jumps.
More than $1 billion—$ in —was spent on publicly owned or operated utilities; and another $1 billion on welfare projects, including sewing projects for women, the distribution of surplus commodities, and school lunch projects. In its eight-year run, the WPA built 325 firehouses and renovated 2,384 of them across the United States. The of water mains, installed by their hand as well, contributed to increased fire protection across the country. Another project was the Household Service Demonstration Project, which trained 30,000 women for domestic employment. South Carolina had one of the larger statewide library service demonstration projects. At the end of the project in 1943, South Carolina had twelve publicly funded county libraries, one regional library, and a funded state library agency.
Federal Project Number One
A significant aspect of the Works Progress Administration was the Federal Project Number One, which had five different parts: the Federal Art Project, the Federal Music Project, the Federal Theatre Project, the Federal Writers' Project, and the Historical Records Survey. The government wanted to provide new federal cultural support instead of just providing direct grants to private institutions. After only one year, over 40,000 artists and other talented workers had been employed through this project in the United States. Cedric Larson stated that "The impact made by the five major cultural projects of the WPA upon the national consciousness is probably greater in total than anyone readily realizes. As channels of communication between the administration and the country at large, both directly and indirectly, the importance of these projects cannot be overestimated, for they all carry a tremendous appeal to the eye, the ear, or the intellect—or all three." In addition, the Federal Music Project gave music classes to an estimated 132,000 children and adults every week, recorded folk music, served as copyists, arrangers, and librarians to expand the availability of music, and experimented in music therapy.
Federal Writers' Project
This project was directed by Henry Alsberg and employed 6,686 writers at its peak in 1936. An association or group that put up the cost of publication sponsored each book, the cost was anywhere from $5,000 to $10,000. In almost all cases, the book sales were able to reimburse their sponsors. With the onset of the Depression, local governments facing declining revenues were unable to maintain social services, including libraries. This lack of revenue exacerbated problems of library access. Acknowledgement of the need, not only to maintain existing facilities but to expand library services, led to the establishment of the WPA's Library Projects.
In 1934, only two states, Massachusetts and Delaware, provided their total population access to public libraries. In many rural areas, there were no libraries, and where they did exist, reading opportunities were minimal. Sixty-six percent of the South's population did not have access to any public library. Libraries that existed circulated one book per capita. Federal money for these projects could only be spent on worker wages, therefore local municipalities had to provide upkeep on properties and purchase equipment and materials. At the local level, WPA libraries relied on funding from county or city officials or funds raised by local community organizations such as women's clubs. Due to limited funding, many WPA libraries were "little more than book distribution stations: tables of materials under temporary tents, a tenant home to which nearby readers came for their books, a school superintendents' home, or a crossroads general store".
WPA veterans involved in internment included Clayton E. Triggs, the first manager of the Manzanar Relocation Center in California, a facility that, according to one insider, was "manned just about 100% by the WPA". Drawing on experiences derived from New Deal–era road building, he supervised the installation of such features as guard towers and spotlights. Then-Secretary of Commerce Harry Hopkins praised his successor as WPA administrator, Howard O. Hunter, for the "building of those camps for the War Department for the Japanese evacuees on the West Coast".
African Americans
The share of Federal Emergency Relief Administration and WPA benefits for African Americans exceeded their proportion of the general population. The FERA's first relief census reported that more than two million African Americans were on relief during early 1933, a proportion of the African-American population (17.8%) that was nearly double the proportion of white Americans on relief (9.5%). This was during the period of Jim Crow and racial segregation in the South, when black Americans were largely disenfranchised.
By 1935, there were 3,500,000 African Americans (men, women and children) on relief, almost 35 percent of the African-American population; plus another 250,000 African-American adults were working on WPA projects. Altogether during 1938, about 45 percent of the nation's African-American families were either on relief or were employed by the WPA. Blacks were hired by the WPA as supervisors in the North; however of 10,000 WPA supervisors in the South, only 11 were black. Historian Anthony Badger argues, "New Deal programs in the South routinely discriminated against blacks and perpetuated segregation."
People with physical disabilities
The League of the Physically Handicapped in New York was organized in May 1935 to end discrimination by the WPA against the physically disabled unemployed. The city's Home Relief Bureau coded applications by the physically disabled applicants as "PH" ("physically handicapped"). Thus they were not hired by the WPA. In protest, the League held two sit-ins in 1935. The WPA relented and created 1,500 jobs for physically disabled workers in New York City.
Women
thumb|right|Women in Costilla, New Mexico, weaving rag rugs in 1939
About 15% of the household heads on relief were women, and youth programs were operated separately by the National Youth Administration. The average worker was about 40 years old (about the same as the average family head on relief).
WPA policies were consistent with the strong belief of the time that husbands and wives should not both be working (because the second person working would take one job away from some other breadwinner). A study of 2,000 female workers in Philadelphia showed that 90% were married, but wives were reported as living with their husbands in only 18 percent of the cases. Only 2 percent of the husbands had private employment. Of the 2,000 women, all were responsible for one to five additional people in the household.
One WPA-funded project, the Pack Horse Library Project, mainly employed women to deliver books to rural areas in eastern Kentucky. Many of the women employed by the project were the sole breadwinners for their families.
Criticism
thumb|Poster representing the WPA defending itself from attacks
The WPA had numerous critics. The strongest attacks were that it was the prelude for a national political machine on behalf of Roosevelt. Reformers secured the Hatch Act of 1939 that largely depoliticized the WPA.
Others complained that far left elements played a major role, especially in the New York City unit. Representative J. Parnell Thomas of the House Committee on Un-American Activities claimed in 1938 that divisions of the WPA were a "hotbed of Communists" and "one more link in the vast and unparalleled New Deal propaganda network".
Much of the criticism of the distribution of projects and funding allotment is a result of the view that the decisions were politically motivated. The South, despite being the poorest region of the United States, received 75% less in federal relief and public works funds per capita than the West. Critics would point to the fact that Roosevelt's Democrats could be sure of voting support from the South, whereas the West was less of a sure thing; swing states took priority over the other states.
There was a perception that WPA employees were not diligent workers, and that they had little incentive to give up their busy work in favor of productive jobs. Some employers said that the WPA instilled poor work habits and encouraged inefficiency. Some job applicants found that a WPA work history was viewed negatively by employers, who said they had formed poor work habits.
A Senate committee reported that, "To some extent the complaint that WPA workers do poor work is not without foundation. ... Poor work habits and incorrect techniques are not remedied. Occasionally a supervisor or a foreman demands good work." The WPA and its workers were ridiculed as being lazy. The organization's initials were said to stand for "We Poke Along" or "We Putter Along" or "We Piddle Around" or "Whistle, Piss and Argue". These were sarcastic references to WPA projects that sometimes slowed down deliberately because foremen had an incentive to keep going, rather than finish a project.
The WPA's Division of Investigation proved so effective in preventing political corruption "that a later congressional investigation couldn't find a single serious irregularity it had overlooked," wrote economist Paul Krugman. "This dedication to honest government wasn't a sign of Roosevelt's personal virtue; rather, it reflected a political imperative. FDR's mission in office was to show that government activism works. To maintain that mission's credibility he needed to keep his administration's record clean. And he did."
Many complaints were recorded from private industry at the time that the existence of WPA works programs made hiring new workers difficult. The WPA claimed to counter this by keeping hourly wages well below private wages and encouraging relief workers to actively seek private employment and accept job offers if they got them.
As WPA projects became more subject to the state, local sponsors were called on to provide 25% of project costs. As the number of public works projects slowly diminished, more projects were dedicated to preparing for war. and on June 6 Harrington reprioritized WPA projects, anticipating a major expansion of the U.S. military. "Types of WPA work to be expedited in every possible way to include, in addition to airports and military airfields, construction of housing and other facilities for enlarged military garrisons, camp and cantonment construction, and various improvements in navy yards," Harrington said. He observed that the WPA had already made substantial contributions to national defense over its five years of existence, by building 85 percent of the new airports in the U.S. and making $420 million in improvements to military facilities. He predicted there would be 500,000 WPA workers on defense-related projects over the next 12 months, at a cost of $250 million.—he had deflected Congressional criticism of the WPA by bringing attention to its building accomplishments and its role as an employer.</blockquote>
Roosevelt ordered a prompt end to WPA activities to conserve funds that had been appropriated. Operations in most states ended February 1, 1943. With no funds budgeted for the next fiscal year, the WPA ceased to exist after June 30, 1943.