American Dream Deferred: Black Federal Workers in Washington, Dc, 1941-1981
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AMERICAN DREAM DEFERRED: BLACK FEDERAL WORKERS IN WASHINGTON, D.C., 1941-1981 A dissertation submitted to the Faculty of the Graduate School of Arts and Sciences of Georgetown University in partial fulfillment of the requirements for the degree of Doctor of Philosophy in History By Frederick W. Gooding, Jr., J.D. Washington, DC June 20, 2013 Copyright 2013 by Frederick W. Gooding, Jr. All Rights Reserved ii AMERICAN DREAM DEFERRED: BLACK FEDERAL WORKERS IN WASHINGTON, D.C., 1941-1981 Frederick W. Gooding, Jr., J.D. Thesis Advisor: Michael Kazin, Ph.D. ABSTRACT This study explores the history of black workers in Washington, D.C.’s federal sector from World War II (WWII) to the early 1980s. Many blacks viewed government employment as a welcome alternative to the limited job prospects and career trajectories available in the hostile and discriminatory private sector. As their numbers in the public sector in Washington increased, African-Americans gained a measure of economic security, elevated their social standing, and increased their political participation, primarily through public sector unions and such civil rights groups as the National Urban League (NUL) and the National Association for the Advancement of Colored People (NAACP). However, the growth of racial liberalism in the post-war era did not do away with discrimination in federal employment. In contrast to their white colleagues, black federal workers consistently faced lower wages and slower promotion rates, despite presidential commissions and laws intended to eliminate racial inequities in the workplace. Gradually, black workers improved their status through collective and individual activism, within a context of official support for their rights. To tell this story, the study draws upon many previously untapped resources. Federal grievance hearings, records from several government commissions and correspondence between federal officials bring to light efforts to acknowledge and address racial frictions within the iii federal workplace. The papers of such local activists as Julius Hobson and such organizations as the NAACP and the Urban League document black efforts to compel the federal government to uphold its Constitutional responsibility for fair play. Both black and “white” newspapers along with black trade union newsletters and black magazines illustrate the narrative. Public employment is an understudied source of African American, labor and institutional history; many blacks used it to escape economic oppression in the South. With a heavy concentration of both black workers and federal agencies, Washington, D.C is an excellent site for a monograph on this subject. Moreover, the tensions between the stated, anti-racist policies of the government and the continuance of discriminatory patterns has implications for other urban areas in which African-Americans moved in large numbers during and after WWII. iv The research and writing of this dissertation is dedicated to everyone who helped along the way. But two require special mention. To the woman who gave me life and love – now I give to your legacy. And to the woman who gives me love and life, I gave my word for eternity. Peace, providence & prosperity to all. Many thanks, Frederick W. Gooding, Jr. v TABLE OF CONTENTS INTRODUCTION: American Dream Deferred .............................................................. 1 Familiar Faces, New Story............................................................. 1 Capital Gains.................................................................................. 4 Blacks in D.C. ............................................................................. 10 Bureaucratic Changes .................................................................. 12 Chapter Overview ........................................................................ 14 CHAPTER ONE: “Raisin in the Sun”: Black Opportunity in the Nation’s Capital, 1941-1944 .............................................................................................. 19 Black Workers Go North to Washington..................................... 19 “Black Collar Workers”............................................................... 24 Staying in D.C.............................................................................. 30 Discrimination at the Agency Level: Inside the OPA ................. 33 D.C. and Boggess both Change ................................................... 50 CHAPTER TWO: “And then Run”: The Achievement and Limits of Commissions to Study Discrimination in the Federal Workforce, 1945-1948................. 55 Returning to Work ....................................................................... 55 Returning to Peacetime................................................................ 58 Early Attempts to Address Inequity............................................. 61 Studying the Problem Further...................................................... 66 How the Committees Gathered Data ........................................... 73 Explaining the Gap ...................................................................... 78 Outcomes .................................................................................... 85 vi CHAPTER THREE: “Stink Like Rotten Meat”: White Resistance to Black Persistence, 1948-1959 .............................................................................................. 91 In the Mix, Not of the Mix........................................................... 91 Storm Warnings for the New Racial Climate .............................. 96 White Workers Slow to Change ................................................ 101 Confronting White Resistance ................................................... 108 CHAPTER FOUR: “Like a Syrupy Sweet”: Julius Hobson and the Rising Civil Rights Movement, 1960-1969......................................................................... 117 Strategy Shift ............................................................................. 117 Activist for Hire ......................................................................... 119 The Government Embraces Civil Rights ................................... 125 Life after Equal Rights............................................................... 135 Reflecting upon Civil Rights Progress....................................... 144 CHAPTER FIVE: “Maybe it Just Sags”: Black Postal Workers Struggle for Improved Conditions, 1969-1971......................................................................... 151 Black Postal Workers in the Nation’s Capital ........................... 151 Black Postal Workers Organize................................................. 154 Federal Recognition of Union Rights ........................................ 159 Wildcat Strike ............................................................................ 163 Still Fighting for Recognition .................................................... 166 National Alliance Fights for Relevance & Respect ................... 170 vii CHAPTER SIX: “Like a Heavy Load”: Blacks in Government Respond to Deferred Opportunities, 1971-1980..................................................... 174 We’ve Only Just Begun ............................................................. 174 Federal White Flight .................................................................. 175 Go Figure: Measuring Racial Progress...................................... 179 Examples of the Continued Black Collar Struggle.................... 182 A Professional Organization is Born ......................................... 193 Preparing Black Workers for Future Battles.............................. 202 BIBLIOGRAPHY........................................................................................................ 210 viii LIST OF ABBREVIATIONS ACT Association of Community Teams AFGE American Federation of Government Employees APWU American Postal Workers Union BIG Blacks in Government CORE Congress of Racial Equality CRA Civil Rights Act CSC Civil Service Commission EEOC Equal Employment Opportunity Commission FEPC Fair Employment Practices Committee HSTL Harry S. Truman Library LC Library of Congress, Washington, D.C. NAACP National Association for the Advancement of Colored People NAPE National Alliance of Postal Employees NAPFE National Alliance of Postal and Federal Employees NACP National Archives at College Park, College Park, MD NARA National Archives and Records Administration, College Park, College Park, MD NCSNC National Committee against Segregation in the Nation’s Capital NPU National Postal Union NUL National Urban League OPA Office of Price Control PCEEO President’s Committee on Equal Employment Opportunity PCCR President’s Committee on Civil Rights PJH Papers of Julius Hobson, Washingtoniana Division. Martin Luther King, Jr. Memorial Library, Washington, D.C. RNAPFE Records of the National Alliance for Postal and Federal Employees, NAPFE National Headquarters, Washington, D.C. RBIG Records of Blacks in Government, BIG National Headquarters, Washington, D.C. RNAACP Records of the National Association for the Advancement of Colored People, Manuscript Division, Library of Congress, Washington, D.C. RNUL Records of the National Urban League, Manuscript Division, Library of Congress, Washington, D.C. RPCCR Records of the President’s Committee on Civil Rights, Harry S. Truman Library, Independence, MO WUL Washington Urban League ix INTRODUCTION AMERICAN DREAM DEFERRED FAMILIAR FACES, NEW STORY The history of black public sector workers remains