Left Out: Policy Diffusion and the Exclusion of Black Workers from Unemployment Insurance

Abstract

Social scientists and historians have identified the exclusion of agricultural workers and domestic servants from social insurance programs during the New Deal as a cause of the racially divided US welfare state. The most prominent explanation for these exclusions is that they originated in a Southern-dominated congress and were deliberately designed to exclude a majority of African-American workers from the emerging welfare state. This article examines recent historical scholarship, archival evidence, and information on unemployment compensation programs internationally to situate this policy choice in a wider context. The exclusion of these categories of workers is consistent with the experience of other unemployment insurance programs. Given the close linkages between the technical experts who drafted the US legislation and their counterparts abroad, the exclusion of agricultural workers and domestic servants from unemployment insurance is best understood as an example of policy diffusion.