Civil Works Administration

Civil Works Administration (CWA), U.S. federal government program instituted during the Great Depression to employ as many needy Americans as possible for the winter of 1933–34. Although it lasted only about five months, the Civil Works Administration (CWA) provided jobs for more than four million people before its dissolution.

In June 1933, as part of the New Deal, the U.S. Congress passed the National Industrial Recovery Act (NIRA), authorizing Pres. Franklin D. Roosevelt to create the Public Works Administration (PWA). The PWA’s goal was to provide work for the unemployed through the execution of public works programs. However, the implementation of the PWA’s goals proved too slow for the Roosevelt administration, and on November 9, 1933, Roosevelt issued an executive order establishing the CWA, to be funded by $400 million from the budget of the PWA.

Credit for the management and success of the CWA is generally ascribed to Harry L. Hopkins, head of the Federal Emergency Relief Administration (FERA). As winter deepened and the possibility of extreme hardship for unemployed citizens loomed, Hopkins was tasked with getting four million people on the CWA’s federal payroll as quickly as possible.

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On November 23, 1933, the CWA’s first payday, a total of 814,511 workers are recorded as having received checks. Two weeks later 1,976,625 paychecks were issued, and by January 18, 1934, the program was employing 4,263,644 people throughout the country. Many of these workers had previously been on federal welfare. Roughly two million CWA workers had formerly been employed by FERA, and the rest of the program’s participants were hired from the unemployed population. Demand for CWA jobs far exceeded supply: It was estimated that as many as 10 million people applied for the open positions.

According to Hopkins, the CWA ultimately included roughly 200,000 projects around the country. All projects were on public land and were sponsored by the state, local, or federal government. The sponsoring body was responsible for providing the materials for each project. Priority was given to projects that could be implemented quickly or would employ the largest number of people. Thus, it was later determined that a disproportionate number of projects had been in rural areas (where small local governments were able to gain consensus for work to begin quickly), although unemployment was higher in urban areas.

A massive number of infrastructure projects were completed during the CWA’s brief existence. CWA programs created or improved 255,000 miles (410,000 km) of road, 2,000 miles (3,200 km) of levees, 1,000 miles (1,600 km) of new water mains, 40,000 schools, 3,700 playgrounds, and 1,000 airports. In addition to this construction work, many projects created opportunities for teachers, artists, writers, statisticians, landscapers, and others. Wages were variable, determined by geographic region, general local wage levels, family need, and whether labour was skilled or unskilled.

During its operation, the CWA was sometimes accused of being a vehicle for graft and corruption. Grievance committees were set up to which individuals could file complaints about the execution of CWA projects, and investigations into alleged fraud were made. Whereas some of these accusations proved justified, many others were instead instances of self-serving local politicians attempting to exploit the management of CWA programs for political gain. In general, historians have concluded that the CWA gave rise to relatively few instances of genuine malfeasance.

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While it is usually agreed that the CWA was only ever intended as a stopgap measure to get the country through a single trying winter, the possibility of its continuation was nevertheless precluded by several factors. Most prominently, Republicans and conservative Democrats in Congress largely opposed what they regarded as an example of state socialism. Arguments were also made that the CWA would impede farm recovery programs. Farmers complained that, because the CWA could pay higher wages than they could, it created an unfair advantage in attracting labourers. Moreover, the program had proved to be significantly more expensive than anticipated: instead of costing $400 million, it ran to about $1 billion. Although Hopkins maintained an impressively low overhead—on average, 80 percent of the cost of the CWA went directly to workers as wages—it was clear that the program was only going to get more expensive, because workers would demand raises as the cost of living rose. Thus, the decision was made to end the program, which effectively concluded on March 31, 1934. Many large CWA projects were left unfinished, sometimes for years.

There was massive popular resistance to the end of the CWA. Indeed, tens of thousands of protest letters were sent to government officials, demanding the continuation of the program. Many of those who had led the CWA, including Hopkins, ended up working for the Works Progress Administration (WPA) after its founding in May 1935. The WPA used an employment model similar to that of the CWA and also had a significant positive effect on unemployment and infrastructure.