The Great Society was a set of domestic programs in the United States launched by President Lyndon B. Johnson in 1964 and 1965. The term was first referenced during a 1964 speech by Johnson at Ohio University,[1] then later formally presented at the University of Michigan, and came to represent his domestic agenda.[2] The main goal was the total elimination of poverty and racial injustice.
New major federal programs that addressed civil rights, education, medical care, urban problems, rural poverty, and transportation were launched during this period. The program and its initiatives were subsequently promoted by LBJ and fellow Democrats in Congress in the 1960s. The Great Society in scope and sweep resembled the 1930s New Deal domestic agenda of Franklin D. Roosevelt.
Some Great Society initiatives were derived from earlier New Frontier proposals, which stalled during the Kennedy administration.[3] Johnson's success depended on his skills of persuasion, coupled with the Democratic landslide victory in the 1964 elections that brought in many new liberals to Congress, making the House of Representatives in 1965 the most liberal House since 1938.[4][3] In the 88th Congress it was estimated that there were 56 liberals and 44 conservatives in the Senate, and 224 liberals and 211 conservatives in the House. In the 89th Congress, by contrast, it was estimated that there were 59 liberals and 41 conservatives in the Senate, and 267 liberals and 168 conservatives in the House.[5]
Anti-war Democrats complained that spending on the Vietnam War choked off the Great Society. While some of the programs have been eliminated or had their funding reduced, many of them, including Medicare, Medicaid, the Older Americans Act and federal education funding, continue to the present. The Great Society's programs expanded under the administrations of Republican Presidents Richard Nixon and Gerald Ford.[6]
Johnson's Great Society initiatives came during a period of rapid economic growth in the U.S., unlike the New Deal three decades earlier, which was a response to the Great Depression. Kennedy proposed an across-the-board tax cut lowering the top marginal income tax rate in the United States by 20%, from 91% to 71%, which was enacted in February 1964, three months after Kennedy's assassination, under Johnson. The tax cut also significantly reduced marginal rates in the lower brackets as well as for corporations. The gross national product rose 10% in the first year of the tax cut, and economic growth averaged a rate of 4.5% from 1961 to 1968.[7]
GNP increased by 7% in 1964, 8% in 1965, and 9% in 1966. The unemployment rate fell below 5%, and by 1966 the number of families with incomes of $7,000 a year or more had reached 55%, compared with 22% in 1950. In 1968, when John Kenneth Galbraith published a new edition of The Affluent Society, the average income of the American family stood at $8,000, double what it had been a decade earlier.[8]
Johnson's first public reference to the "Great Society" took place during a speech to students on May 7, 1964, on Ohio University's historic College Green in Athens, Ohio:
And with your courage and with your compassion and your desire, we will build a Great Society. It is a society where no child will go unfed, and no youngster will go unschooled.[9]
He later formally presented his specific goals for the Great Society in another speech at the University of Michigan in Ann Arbor, Michigan, on May 22, 1964.
We are going to assemble the best thought and broadest knowledge from all over the world to find these answers. I intend to establish working groups to prepare a series of conferences and meetings—on the cities, on natural beauty, on the quality of education, and on other emerging challenges. From these studies, we will begin to set our course toward the Great Society.[10]
Almost immediately after the Ann Arbor speech, 14 separate task forces began studying nearly all major aspects of United States society under the guidance of presidential assistants Bill Moyers and Richard N. Goodwin.[11] In his use of task forces to provide expert advice on policy, Johnson was following Kennedy's example, but unlike Kennedy, Johnson directed his task forces to work in secret.[11] His intent was to prevent his program from being derailed by public criticism of proposals that had not yet been reviewed.[12] The average task force had five to seven members and generally was composed of governmental experts and academics.[13]
After the task force reports were submitted to the White House, Moyers began a second round of review. The recommendations were circulated among the agencies concerned, and strategies were developed for getting the proposed legislation through Congress.[14] On January 4, 1965, Johnson announced much of his proposed program in his State of the Union Address.
With the exception of the Civil Rights Act of 1964,[15] the Great Society agenda was not a widely discussed issue during the 1964 presidential election campaign. Johnson won the election with 61% of the vote, and he carried all but six states. Democrats gained enough seats to control more than two-thirds of each chamber in the Eighty-ninth Congress, with a 68–32 margin in the Senate and a 295–140 margin in the House of Representatives.[8]
Johnson won a large majority of the Jewish vote, a liberal constituency that gave strong support to the Great Society.[16]
The political realignment allowed House leaders to alter rules that had allowed Southern Democrats to kill New Frontier and civil rights legislation in committee, which aided efforts to pass Great Society legislation. In 1965, the first session of the Eighty-Ninth Congress created the core of the Great Society. It began by enacting long-stalled legislation such as Medicare and federal aid to education and then moved into other areas, including high-speed mass transit, rental supplements, truth in packaging, environmental safety legislation, new provisions for mental health facilities, the Teacher Corps, manpower training, the Head Start program, aid to urban mass transit, a demonstration cities program, a housing act that included rental subsidies, and an act for higher education.[8] The Johnson Administration submitted 87 bills to Congress, and Johnson signed 84, or 96%, arguably the most successful legislative agenda in US congressional history.[17]
The Naked Society is a 1964 book on privacy by Vance Packard. The book argues that changes in technology are encroaching on privacy and could create a society in the future with radically different privacy standards. Packard criticized advertisers' unfettered use of private information to create marketing schemes. He compared a recent Great Society initiative by then-president Lyndon B. Johnson, the National Data Bank, to the use of information by advertisers and argued for increased data privacy measures to ensure that information did not find its way into the wrong hands. The essay led Congress to create the Special Subcommittee on the Invasion of Privacy and inspired privacy advocates such as Neil Gallagher and Sam Ervin to fight what they perceived as Johnson's flagrant disregard for consumer privacy. Ervin criticized Johnson's domestic agenda as invasive and claimed that the unfiltered database of consumers' information as a sign of presidential abuse of power. Ervin warned that "The computer never forgets".[18] Jerry M. Rosenberg dedicated a chapter of his 1969 book The Death of Privacy to the National Data Bank.[19]
Historian Alan Brinkley has suggested that the most important domestic achievement of the Great Society may have been its success in translating some of the demands of the civil rights movement into law.[20] Four civil rights acts were passed, including three laws in the first two years of Johnson's presidency. The Civil Rights Act of 1964[15] forbade job discrimination and the segregation of public accommodations.
The Voting Rights Act of 1965 assured minority registration and voting. It suspended use of literacy or other voter-qualification tests that had sometimes served to keep African-Americans off voting lists and provided for federal court lawsuits to stop discriminatory poll taxes. It also reinforced the Civil Rights Act of 1964[15] by authorizing the appointment of federal voting examiners in areas that did not meet voter-participation requirements. The Immigration and Nationality Services Act of 1965 abolished the national-origin quotas in immigration law. The Civil Rights Act of 1968 banned housing discrimination and extended constitutional protections to Native Americans on reservations.
Johnson recognized the benefits and costs of passing civil rights legislation. His support for the 1964 Civil Rights Act was despite his personal opinions on racial matters, as Johnson regularly articulated thoughts and disparaging language against racial minorities, including against African-Americans and Asians.[21] Scholar and biographer Robert Caro suggested that Johnson used racially charged language to appease legislators in an effort to pass civil rights laws, including adapting how he said the word 'negro' based upon where the legislator's district was located.[21]
The most ambitious and controversial part of the Great Society was its initiative to end poverty. The Kennedy Administration had been contemplating a federal effort against poverty. Johnson, who, as a teacher, had observed extreme poverty in Texas among Mexican-Americans, launched an "unconditional war on poverty" in the first months of his presidency with the goal of eliminating hunger, illiteracy, and unemployment from American life. The centerpiece of the War on Poverty was the Economic Opportunity Act of 1964, which created an Office of Economic Opportunity (OEO) to oversee a variety of community-based antipoverty programs.
Federal funds were provided for special education schemes in slum areas, including help in paying for books and transport, while financial aid was also provided for slum clearances and rebuilding city areas. In addition, the Appalachian Regional Development Act of 1965 created jobs in one of the most impoverished regions of the country.[citation needed] The Economic Opportunity Act of 1964 provided various methods through which young people from poor homes could receive job training and higher education.[22]
The OEO reflected a fragile consensus among policymakers that the best way to deal with poverty was not simply to raise the incomes of the poor but to help them better themselves through education, job training, and community development. Central to its mission was the idea of "community action", the participation of the poor in framing and administering the programs designed to help them.
The War on Poverty began with a $1 billion appropriation in 1964 and spent another $2 billion in the following two years. It gave rise to dozens of programs, among them the Job Corps, whose purpose was to help disadvantaged youth develop marketable skills; the Neighborhood Youth Corps, established to give poor urban youths work experience and to encourage them to stay in school; Volunteers in Service to America (VISTA), a domestic version of the Peace Corps, which placed concerned citizens with community-based agencies to work towards empowerment of the poor; the Model Cities Program for urban redevelopment; Upward Bound, which assisted poor high school students entering college; legal services for the poor; and the Food Stamp Act of 1964 (which expanded the federal food stamp program).[23]
Programs included the Community Action Program, which initiated local Community Action Agencies charged with helping the poor become self-sufficient; and Project Head Start, which offered preschool education for poor children. In addition, funding was provided for the establishment of community health centers to expand access to health care,[24] while major amendments were made to Social Security in 1965 and 1967 which significantly increased benefits, expanded coverage, and established new programs to combat poverty and raise living standards.[25] In addition, average AFDC payments were 35% higher in 1968 than in 1960, but remained insufficient and uneven.[26]
The most important educational component of the Great Society was the Elementary and Secondary Education Act of 1965, designed by Commissioner of Education Francis Keppel. It was signed into law on April 11, 1965, less than three months after it was introduced. It ended a long-standing political taboo by providing significant federal aid to public education, initially allocating more than $1 billion to help schools purchase materials and start special education programs to schools with a high concentration of low-income children. During its first year of operation, the Act authorized a $1.1 billion program of grants to states, for allocations to school districts with large numbers of children of low-income families, funds to use community facilities for education within the entire community, funds to improve educational research and to strengthen state departments of education, and grants for the purchase of books and library materials.[27] The Act also established Head Start, which had originally been started by the Office of Economic Opportunity as an eight-week summer program, as a permanent program.
The Higher Education Facilities Act of 1963, which was signed into law by Johnson a month after becoming president,[28] authorized several times more college aid within a five-year period than had been appropriated under the Land Grant College in a century. It provided better college libraries, ten to twenty new graduate centers, several new technical institutes, classrooms for several hundred thousand students, and twenty-five to thirty new community colleges a year.[29]
This major piece of legislation was followed by the Higher Education Act of 1965, which increased federal money given to universities, created scholarships and low-interest loans for students, and established a national Teacher Corps to provide teachers to poverty-stricken areas of the United States. The Act also began a transition from federally funded institutional assistance to individual student aid.
In 1964, basic improvements in the National Defense Education Act were achieved, and total funds available to educational institutions were increased. The yearly limit on loans to graduate and professional students was raised from $1,000 to $2,500, and the aggregate limit was raised from $5,000 to $10,000. The program was extended to include geography, history, reading, English, and civics, and guidance and counseling programs were extended to elementary and public junior high schools.[23]
The Bilingual Education Act of 1968 offered federal aid to local school districts in assisting them to address the needs of children with limited English-speaking ability until it expired in 2002.[30]
The Great Society programs also provided support for postgraduate clinical training for both nurses and physicians committed to work with disadvantaged patients in rural and urban health clinics.[31]
On August 31, 1964, an amendment to the proposed Social Security Amendments of 1964, which further increased the proposed level of Social Security benefits and added hospital insurance to the program, was passed in the Senate by a vote of 49 to 44. The following day the entire bill passed the Senate by 60 to 28 votes. Following this vote, as noted by one study, "Seeking to ensure that the health insurance proposal emerge from the conference committee as part of the report, the administration flirted with an effort to have the full House of Representatives vote to instruct the conference to yield to the Senate version. Though the health insurance provision appeared to have majority support in the House, the tactic did not, and the idea was dropped. Sure enough, the House conferees voted 3 to 2 against the Senate health provision; the Senate conferees voted 4 to 3 to accept a bill only if Medicare were included."[32] Medicare finally came about with the Social Security Act of 1965 which authorized Medicare and provided federal funding for many of the medical costs of older Americans.[33] The legislation overcame the bitter resistance, particularly from the American Medical Association, to the idea of publicly funded health care or "socialized medicine" by making its benefits available to everyone over sixty-five, regardless of need, and by linking payments to the existing private insurance system.
In 1966 welfare recipients of all ages received medical care through the Medicaid program. Medicaid was created on July 30, 1965, under Title XIX of the Social Security Act of 1965. Each state administers its own Medicaid program while the federal Centers for Medicare and Medicaid Services (CMS) monitors the state-run programs and establishes requirements for service delivery, quality, funding, and eligibility standards.
Under the Economic Opportunity Act of 1964's Community Action Program, as noted by one study, "hospitals, medical schools, community groups, and health departments received grants to plan and administer neighborhood health centers in low-income areas." One hundred neighborhood health centers had been set up under the Economic Opportunity Act by 1971.[34][35]
A number of changes were made to the Social Security program in terms of both coverage and adequacy of benefits. The Tax Adjustment Act of 1966 included a provision for special payments under the social security program to certain uninsured individuals aged 72 and over. The Social Security Amendments of 1965 included a 7% increase in cash benefits, a liberalization of the definition of disability, a liberalization of the amount a person can earn and still get full benefits (the so-called retirement test), payment of benefits to eligible children aged 18–21 who are attending school, payment of benefits to widows at age 6