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2
BLACK PARTICIPATION IN
AMERICAN SOCIETY
55
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Kenneth Hayes Miller
Bargain Hunters (1940)
Oil on canvas
National Museum of American Art, Smithsonian Institution,
Gift of the Sara Roby Foundation
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Black white relations in the United
States have historically involved black subordination and exclusion from the
major social institutions of society. In this chapter, we assess change over
time in blacks' participation in American institutions and in black-white
relations. Thus, we address the questions of how much "desegregation'' and
"integration" have occurred in the United States since World War II.
Throughout the discussion, desegregation refers only to the absence of seg-
regation-the complete numerical exclusion of a group, in this case, blacks.
Integration refers to the nature of intergroup relations, to the quality of
group treatment or interaction that exists.
Complete integration exists in a multiracial institution if: (1) there is sig-
nificant numerical representation for each group; (2) each group is distrib-
uted throughout the institutional structure; and (3) each group enjoys equal-
ity, authority, and power within the institution. These conditions will not
develop, according to Williams (1947) and Allport (1954), unless equal
status of the races is achieved, common superordinate goals exist for all, and
the process has authoritative sanction and support. In the 1980s, nearly all
institutions in the United States are desegregated; few, if any, are completely
integrated in this sense of the term.
The first section notes conditions affecting the lives of blacks during the
10-year period before and during World War II. That period marked the
end of an era in American race relations and is a good baseline against which
subsequent social conditions can be appraised. However, as noted in Chapter
1, comparisons of social positions in the 1940s with those of the 1980s
invariably lead to assessments of large improvement. Intermediate time points
57
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A COMMON DESTINY: BLACKS AND AMERICAN SOCIETY
are therefore considered to assess whether change has been sporadic or
continuous. Our descriptions of black participation in areas such as housing,
schools, the military, and sports also pay attention to social developments
during the past 20 years, thus using the 1960s as a secondary baseline period.
This strategy of comparison is used throughout the report.
This chapter focuses on black participation in three major areas: social
institutions, the military, public schools, and public accommodations and
workplaces; residential neighborhoods; and social life, religious organiza-
tions, sports, and arts and entertainment. Black participation varies consid-
erably across these areas. General policies toward desegregation were insti-
tuted earliest, and perhaps most successfully, in the military, where
governmental authority is greatest. The desegregation of public schools was
also the focus of considerable governmental authority, with less clear-cut
results. The role of governmental authority and equality of treatment and
black participation in housing and other sectors of social life vary greatly. In
organized sports and arts and entertainment, in the absence of much govern-
mental pressure, levels of black participation and equal treatment have been
higher than those in most other areas of social life. In contrast, black partic-
ipation in predominantly white residential neighborhoods has shown little
change since 1960 despite some governmental pressure. Evidently, under-
standing patterns of black participation involves complicated issues of gov-
ernmental authority, attitudes toward black-white relations, and other social
conditions. These issues are discussed in detail in Chapter 3.
THE BASELINE PERIOD: 1935-1945
SOCIAL RELATIONS UNDER JIM CROW
The basic demographic character of the black population during the 1930s
was rural and southern. Segregation was the rule in public accommodations,
health care, housing, schooling, work, the legal system, and interpersonal
relations. This segregation was not "separate but equal"; virtually all facilities
and services for blacks were fewer in number, much lower in quality, or
more inaccessible than those for whites (Bell, 1986b:1, 5; Johnson, 1943~.
For example, in public education, states operating under legislated segregated
school systems spent far more on the education of white pupils than on that
for black pupils. In the southern states for which data are available, per-pupil
expenditures for whites averaged more than 3 times those for blacks (see
Table 2-1~. In Mississippi, the rate of expenditure for whites was 7 times
greater than that for blacks. Another example was health care, which was
negligible for most rural black people, and in urban areas all-white hospitals
and hospitals with less-than-equal, segregated black wings were common.
Differential access to health care for blacks was reflected in great disparities
in black and white mortality and morbidity rates (see Chapter 8~.
In many parts of the South, km Crow laws segregated blacks in public
58
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State
Value
of School
Property per
Negro Pupil
$ 29 $47.59
40 36.87
69.76
55.56
77.11
Expense per Pupil
White Negro
BLACK PARTICIPATION IN AMERICAN SOCIETY
TABLE 2-1 Per-Pupil Expenditures and Value of School Property in Selected
_ ~= ~
Percent that
$ per White
Pupil Exceeds
$ per Black
Pup]
$14.63 225.3%
13.73 168.5
26.95 158.8
16.95 227.8
20.49 276.3
Alabama
Arkansas
Florida
Georgia
. , . .
. _oulslana
Maryland
Mississippi
North Carolina
South Carolina
Texas
Virginia
Average
Note: Data are based on average daily attendance.
Source: Unpublished data Tom U.S. Department of Education.
45
186
14
54
44
80
77
52.01
4~6.02
57.33
72.72
$58.69
7.36 606.6
28.30 62.6
15.42 271.8
28.49 155.2
$18.82 211.8%
. . . . . .
transportation by restnct~ng waiting room, restroom, and transportation
vehicle areas. Marriage between blacks and whites was illegal in all the
southern states and in some other states as well. In the Deep South espe-
cially, blacks were expected to "know their place" by exhibiting deferential
behavior in all relations with whites. Infringements of the norms of segrega-
tion or any open resistance to white domination were often met by violence.
By official estimates, 46 black people were lynched in the South during the
1930s. Lynching did not always involve just hanging but sometimes included
burning, mutilation, other forms of torture, and physical degradation
(McAdam, 1982~. Such atrocities seldom resulted in the arrest of those
involved. Local authorities often colluded in lynchings or stood by while
they occurred.
Segregation was more than simple black-white separation. With its poten-
tial violence and basic inequality, segregation was a potent system of white
control over the black population. While most black people did not have to
confront lynch mobs, the potential for such violence loomed before them,
and they could not depend on the legal system for protection (Franklin,
1969;Raper, 1933~.
Segregation of whites and blacks was widely supported by whites through-
out the nation. Data reported by Horowitz (1944) and surveys by the
National Opinion Research Center (NORC) during the 1940s provide key
information on preferences for segregation and the extent of racist beliefs.
Although there were North-South differences, the data reported by Horo-
witz (1944) show that most white Americans in 1939 thought blacks were
59
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A COMMON DESTINY: BLACKS AND AMERICAN SOCIETY
less intelligent than whites (69 percent), and unambiguously endorsed seg-
regated restaurants, neighborhoods, and schools (99, 97, and 98 percent of
southerners and 62, 82, and 58 percent of northerners, respectively). In
1944, the NORC found 80 and 47 percent of southerners and northerners,
respectively, condoned labor market discrimination, agreeing with the state-
ment that whites "should have the first chance at any kind of job," and
thought that black-white inequality was essentially fair and mainly the fault
of the shortcomings of blacks themselves. These beliefs were overwhelmingly
accepted in the South, where it is fair to say that Jim Crow and the ideology
of white supremacy were clearly dominant (Bobo, 1987~.
Black-white segregation was pervasive throughout the United States, not
just in the legally segregated South. Exclusion of black people was common
in government, business, community associations, and in most unions.
Moreover, the media generally promulgated the subordinate position of
black people through widespread racist caricatures (see Norford, 1976:877-
878~. The images and understandings of black Americans held by whites
were distinctly shaped by existing prejudices, and the gulf between these two
groups was immense. Yet North-South differences and pressures toward
change during World War II suggested both that the future would bring
change in black-white relations and that many people, especially in the
South, would resist.
. . . . . . . . . . _ _ _ _ . _
MIGRATION AN D URBAN IZATION
Students of black-white relations in the United States have observed that
World War II was a major catalyst to change. The war led to increased black
migration to urban and northern areas, provided greater economic opportu-
nities for blacks, brought many blacks and whites into close social contact
for the first time, broadened the social and political horizons of many blacks,
and led increasingly to the views that racist ideology and practice were evils
inconsistent with basic democratic principles.
During World War II and for 25 years afterward, the nation's economy
grew at a rapid rate. Facing labor shortages, many industries, especially
, . . . . . . .
, _ c,
durable goods manufacture, drew from a sector of the American economy
that had a large labor surplus: agriculture, particularly the labor-intensive
farms of the South. As a result, some of the northeastern and midwestern
states and California gained large black populations between 1940 and 1970.
During each of the three decades beginning in 1940, there was a net
outmigration from the South of about 1.5 million blacks (see Figure 2-1~.
This was about 15 percent of the South's black population at the middle of
each decade. Thus, while 77 percent of blacks lived in the South in 1940
this figure had decreased to 53 percent by 1970.
Many aspects of this migration have been clearly documented: migrants
were younger and more extensively educated than those who remained,
although their attainments were below those of comparably aged northern-
born blacks; migration to the North frequently took place in steps, from a
60
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BLACK PARTICIPATION IN AMERICAN SOCIETY
FIGURE 2-1 Regional distribution of black population, 1939-1979.
1939
1979
Source: Data Tom decennial censuses.
1959
Northeast
n Midwest
_..
. South
C:1 West
rural farm area to a southern city, and then a second move to a northern
city. Blacks most frequently went to large cities, such as Chicago, St. Louis,
Philadelphia, and New York, as those cities were easily accessible by the rail
lines linking the South and North. Later, there was movement into other
northern areas, but many cities in the North-Minneapolis, Akron, and the
manufacturing centers of upstate New York-attracted few black migrants
and still have small black populations (see reviews in Farley, 1987; Letwin,
1986~.
Blacks who moved to the North were relatively successful. In the 1960s,
many commentators speculated-quite incorrectly, it is now known-that
61
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A COMMON DESTINY: BLACKS AND AMERICAN SOCIETY
TABLE 2-2 Black Percentage of Population of the 20
Largest U.S. Cities, 1940-1980
City a 1940 1960 1980
New York 6 14 25
Chicago 8 23 40
Philadelphia 13 26 38
Detroit 9 29 63
Los Angeles 4 14 17
Cleveland 10 29 4~4
Baltimore 19 35 55
St. Louis 13 29 45
Boston 3 9 22
Pittsburgh 9 17 24
Washington, D.C. 28 54 70
San Francisco < 1 10 13
Milwaukee 2 9 23
Buffalo 3 13 27
New Orleans 30 37 55
Minneapolis 1 2 8
Cincinnati 12 21 34
Newark 21 34 58
Kansas City 5 17 27
Indianapolis 3 21 22
aCiiies are listed by rank in tot pop~anon in 1940.
the problems of declining northern cities were caused by the arrival of a
poorly educated rural black population. They suggested that the southern
blacks were culturally and intellectually unsuited for the complex life of the
modern city. Given these deficiencies, it was argued that migrants withdrew
from the search for regular employment and either depended on welfare or
became criminals. A variety of studies since then have shown the error of
many of these assertions. Compared with northern-born blacks, those born
in the South who moved North were not extensively educated, but they
worked longer hours, were less likely to be unemployed, and were somewhat
more effective than northern-born blacks in translating their educational
attainments into earnings. In addition, southern-born blacks were less likely
to use welfare than those born in the North (Farley, 1987; Letwin, 1986~.
One of the most dramatic consequences of the post-1940 migration was
the change in the racial composition of the nation's cities. The 20 largest
cities in 1940 are listed in Table 2-2 along with the percentage of their
populations that were black in 1940, 1960, and 1980. In 1940, the popu-
lations of just two of these cities, Washington and New Orleans, were one-
quarter or more black; only five major northern cities had a black population
equal to or exceeding the national average of 10 percent. In 1960, as a result
of black migration, along with the suburbanization of whites, eight of those
large cities were at least one-quarter black. This trend persisted in the follow-
ing decades, and by 1980 five cities had black majorities and another seven
62
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BLACK PARTICIPATION IN AMERICAN SOCIETY
were more than one-quarter black. Only one city-Minneapolis-had a black
population smaller than the national average of 11.7 percent.
Black urbanization in turn had several consequences. As black voters be-
came more influential in local and national affairs, articulate spokesmen for
civil rights, such as Congressmen William L. Dawson of Chicago, Adam
Clayton Powell of Harlem (New York), and Charles C. Digits of Detroit,
were elected in the 1940s and 1950s. The development of a somewhat larger
black middle class resulted in personnel and financial support for the civil
rights struggle of the 1950s and 1960s.
RISI NG BLACK PROTEST
Many black Americans recognized the opportunity for change made pos-
sible by World War II. Painfully aware of the disparity between democratic
ideals and practice in the United States, blacks organized to use the interna-
tional crisis to further their demands for equality at home. As the Pittsb?~r,gh
Courier, a black-owned newspaper, stated (Dalfiume, 1968:96-97~: "What
an opportunity the crisis has been . . . to persuade, embarrass, compel and
shame our government and our nation . . . into a more enlightened attitude
toward a tenth of its people. "
In the face of almost universal discrimination against blacks in the armed
forces and defense industries, organizations like the National Association for
the Advancement of Colored People (NAACP) increased their protest activ-
ities. A. Philip Randolph, a veteran black activist and founder of a major
black union, the Brotherhood of Sleeping Car Porters, consolidated the
protest sentiment and focused it on the seat of government. Arguing that
only the power of the organized masses could effect change, he suggested
that 10,000 blacks march on Washington, D.C., on July 1, 1941, under the
banner: "We loyal Negro-American citizens demand the right to work and
fight for our country." In response to Randolph's call, President Roosevelt
issued Executive Order 8802, which forbade discrimination in defense indus-
tries and established the President's Committee on Fair Employment Prac-
tices to monitor the private sector. With this victory in hand, Randolph
cancelled the proposed march (Franklin, 1966:78~.
Some important increases in black participation occurred in war industries,
especially in shipbuilding and steel. In general, these increases came as pres-
sures from the wartime economy and from civil rights groups grew more
intense, forcing industry to hire more black workers (Weaver, 1946~. There
were also major increases during the war in black participation in the military
forces and civilian government service. These increases in the number of
black workers were accompanied by opposition and conflict from manage-
ment and white workers.
Evidence that black protest during the war was likely to continue came
from the worldwide surveys of American soldiers conducted by the War
Department from 1941 to 1946 (Stouffer et al., 1949, Vol. I:Ch. 10~. These
studies showed that black soldiers defined their circumstances in racial terms,
63
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A COMMON DESTINY: BLACKS AND AMERICAN SOCIETY
rejected discrimination and segregation, and emphasized equal rights. White
soldiers, in contrast, did not think that blacks were dissatisfied and said that
blacks were being treated fairly. Stouffer and colleagues (1949:507) con-
cluded: "This underlying theme of Negro protest against and white compla-
cency toward the racial status quo [could], in broad and somewhat oversim-
plified fashion, be perceived in almost every aspect of Negro-white
relationships. "
The studies also showed large North-South differences among black sol-
diers, with northern black men more likely to reject racial separation and to
express willingness to enter combat (Stouffer et al., 1949:526-530~. The
authors of The American Soldier summarized their interpretation of the
broader implications of the research findings in words that foreshadowed
much of the national debates in subsequent decades (Stouffer et al.,
1949:599~:
The problem, then, was one of justice within our existing institutional
Eamework. Defenders of segregation and of other aspects of a system based
upon racial categorization were in the difficult position of having no defense
on the level of accepted principle against the claims of the Negroes....
That no more generally satisfactory solution to these conflicts emerged
within the Army only reflects the inability of a single segment like the Army
to accomplish what the larger society has yet to achieve.
The war years saw an increase in black community activism, which formed
a base for major changes in black-white relations in the 1950s and 1960s.
Indeed, the issues of concern to blacks during the war years prefigured those
that would become central to the civil rights movement and to the general
issue of equal opportunity. Conflicts over public accommodations, occupa-
tional mobility, housing, and media images were important both in the
civilian and military domains. For many blacks, all of these were crucial
issues. Whether it was outright violence or restrictive regulations aimed
against black use of an officers club or black seating on a train, segregation
and discrimination were viewed as barriers that black activism could and
should change.
BLACK PARTICIPATION IN
SOCIAL I NSTITUTIONS SI NCE 1945
As the civil rights movement grew and black community organizations
accelerated their campaigns, an increasing number of judicial, presidential,
and congressional decisions, orders, and legislation aimed at dismantling
barriers to black participation appeared. The first 20 years after World War
II were an era of challenge to discriminatory barriers to black participation.
We note a few important dates:
1948 President Truman in Executive Order 9981 directs the Armed Forces
to institute equal opportunity and treatment among the races.
64
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BLACK PARTICIPATION IN AMERICAN SOCIETY
1954 The Supreme Court in Brown v. Board of Ed?~ca~on of Topeka rules
against segregation of blacks and whites in public schools.
1955 President Eisenhower in E'cecutz~e Order 1059 establishes the Presi-
dent's Committee on Government Employment Policy to fight dis-
crimination in employment (replacing the Fair Employment Prac-
tices Committee established by President Truman in 1948~.
1955 The 1955 Interstate Commerce Commission issues an order banning
segregation of passengers on trains and buses used in interstate travel.
1957 The 1957 Civil Rights Act creates a six-member presidential commis-
sion to investigate allegations of the denial of citizen's voting rights.
1960 The 1960 Civil Rights Act strengthens the investigatory powers of
the 1957 civil rights commission.
1961 President Kennedy establishes the Committee on Equal Employ-
ment Opportunity aimed against discrimination in employment.
1961 The Justice Department moves against discrimination in airport fa-
cilities under the provisions of the Federal Airport Act and against
discrimination in bus terminals under the Interstate Commerce
Commission Act.
1962 President Kennedy in E'cec?~ve Order 11063 bars discrimination in
federally assisted housing.
1964 The Civil Rights Act prohibits discrimination in public accommo-
dations and employment.
1965 The Voting Rights Act suspends literacy tests and sends federal
examiners into many localities to protect rights of black voters.
1968 Fair housing legislation outlaws discrimination in the sale or rental
of housing.
Few of these laws led to immediate implementation of their stated objec-
tives. When practical gains did occur, they came after great efforts by many
people to see that laws were enforced (Chapter 5~. There was intense con-
gressional resistance to proposed changes, and many proposed laws were not
enacted: anti-poll tax and anti-lynching legislation were defeated in Congress
in 1949; a transportation bill prohibiting segregation or discrimination in
interstate transportation was not cleared by the House Rules Committee in
1954; civil rights legislation in 1956 was held up by the Judiciary Commit-
tee. And the 1960 Civil Rights Act was substantively altered to suit southern
. . .
congresslona . opposition.
There were widespread attempts to intimidate black people who attempted
to vote and engage in other political and social activities. Between 1955 and
1970, dozens of blacks and some white supporters were killed; private homes,
places of business, and churches were bombed and fired on. 2'Iuch of the
violence, and especially the bombings and attacks on demonstrators, was
planned and often supported-or at least judiciously ignored-by local white
authorities. The Ku Klux Klan, White Citizens' Councils, and other local
organizations attempted to intimidate black people in order to halt the
struggle for civil rights.
65
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A COMMON DESTINY: BLACKS AND AMERICAN SOCIETY
materials, characters, and culture. A few black authors, such as Frank Yerby
and Willard Motley, attained success in the 1940s and 1950s with novels
that were written about whites for a mainly white audience.
General popularity of black artists may best be exemplified in popular
music. During the 1950s, many creative artists, such as Chuck Berry, Little
Richard, and B. B. King, received rather limited commercial success relative
to the influence of their music on other artists and popular culture in
general. During the 1960s and 1970s, black performers increasingly gained
popularity with white audiences as the "Motown sound" created by entre-
preneur Berry Gordy produced widely popular performers such as the Su-
premes. The list of "crossover" or mass appeal artists has grown considerably
since the 1950s and 1960s when performers such as Nat King Cole, Johnny
Mathis, Ray Charles, Dionne Warwick, the Fifth Dimension, and Sam Cooke
were reaching national top-ten charts. The largest selling album in history is
Michael lackson's Thriller, and two other black performers, Lionel Richie
and Whitney Houston, have albums on the top-ten list for the 1980s.
Perhaps exemplifying the emergence and increased acceptance of the black
American performing artist in modern music was trumpeter Wynton Mar-
salis's winning of Grammy awards as both the top jazz soloist (1983-1985)
and the best solo classical performance with an orchestra (1983-1984~.
Popular music thus represents the field where the black presence has per-
haps been most influential and is now most recognized and rewarded. Other
areas-Fin, literature, and the visual arts-have a number of successful black
artists, but barriers to black participation and recognition have not been
removed to the same extent as in music (Powell, 1986; Stroman, 1986~.
In film and television, for instance, the first appearances of blacks were as
song-and-dance performers, musicians, and servants. Only in the late 1950s
did major performers-Sidney Poitier, Sammy Davis, Tr., Harry Belafonte,
Nat King Cole-begin to appear. Bill Cosby became the first black television
performer in a costarring role in a regular television series, I Spy in the 1960s.
In the 1970s, the black presence on television was widespread, although the
relatively low rate of employment and limited types of roles in the industry
evoked many protests and legal actions (Norford, 1976: 881-887~.
Systematic reviews of research support several generalizations about blacks
and television (Poindexter and Stroman, 1981~. Blacks were initially greatly
underrepresented in television portrayals, but the trend has been toward
increased visibility. However, blacks are generally presented in minor roles
and low status occupations; stereotyping and unfavorable characterizations
continue to be presented. As consumers, blacks are more likely than whites
to rely heavily on television for both information and entertainment, and
blacks are more likely than whites, on average, to credit television portrayals
with realism. Blacks have distinctive preferences for programs that feature
black characters. Finally, there is an almost total lack of empirical study of
the content and influence of television programs featuring black characters
and themes.
.
102
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BLACK PARTICIPATION IN AMERICAN SOCIETY
CONCLUSION
There are great differences in patterns of historical change and current
rates of black participation in American society. Despite these differences,
two major conclusions emerge. First, whether one considers arts and enter-
tainment, religious institutions, public schools, or a number of other major
institutions, black participation has increased significantly, whether the base-
line is pre-World War II or the mid-1960s. Second, with the exception of
the Army, where there is considerable integration, increased rates of black
participation have not resulted in the elimination of racial separation in
American life.
Thus, while there has been increased access to housing for blacks in many
areas of the nation, residential separation of whites and blacks in large met-
ropolitan areas remains nearly as high in the 1980s as it was in the 1960s.
This separation in housing underlies black-white patterns of separation in
many other areas. For example, large-scale desegregation of public schools
occurred in the South during the late 1960s and early 1970s and has been
substantial in many small and medium-sized cities elsewhere; however, the
pace of school desegregation has slowed, and black-white separation is still
significant, especially outside the South. And because of the differential
effects of educational tracking and differential social punishment rates, con-
siderable separation of black and white students continues to exist even
within desegregated schools.
Within desegregated settings throughout American society, blacks do not
share equal authority and representation throughout an organization or
institution. In major institutions with considerable numerical representation
of blacks at some levels (e.g., sports and entertainment fields), blacks are
conspicuously absent Tom decision-making positions. Gaining insight into
why black participation vanes so much across different spheres of social life
requires analysis of the attitudes, values, and behavior of Americans that
underlie the observed patterns. These dimensions of black-white relations
are discussed in the next chapter.
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A COMMON DESTINY: BLACKS AND AMERICAN SOCIETY
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BLACK PARTICIPATION IN AMERICAN SOCIETY
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111
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Representative terms from entire chapter:
predominantly white