Please Note: For an excellent overview of the era of Franklin Delano Roosevelt in American history, you may also want to read Franklin D. Roosevelt and the New Deal:
The Roosevelt Reconstruction by historian William E. Leuchtenburg, which is also available at the Franklin
D. Roosevelt American Heritage Center.
Want to learn about the many New Deal programs and what the New Deal did for the people of America during the 1930s and 1940s? Visit the FDR Center's New Deal summary section to learn all about the New Deal.
Franklin Delano Roosevelt
(30 Jan. 1882-12 Apr. 1945), thirty-second president of the United
States, was born on his family's estate in Dutchess County, New
York, the son of James Roosevelt, a wealthy, landed gentleman who
dabbled in but usually devoted no great effort to business, and
Sara Delano. The couple lived their lives and raised their child
in a manner reminiscent of the English aristocracy, and Franklin
grew up, therefore, in a remarkably cosseted environment, insulated
from the normal experiences of most American boys both by his family's
wealth and by their all-encompassing love. Until he was fourteen
years old, he lived in a world almost entirely dominated by adults:
his Swiss tutors, who supervised his lessons at home or during the
family's annual travels through Europe; his father, who sought to
train his son in the life of a landowner and gentleman; and above
all his mother, who devoted virtually all her energies to raising
her only child.
It was a world of extraordinary comfort,
security, and serenity but also one of reticence and reserve, particularly
after 1891, when James Roosevelt suffered the first of a series
of heart attacks that left him a semi-invalid. Franklin responded
to his father's condition protectively. He tried to spare his father
any anxiety by masking his own emotions and projecting a calm, cheerful
demeanor. He would continue hiding his feelings behind a bright,
charming surface for the rest of his life.
In the fall of 1896 Franklin left his parents to attend Groton,
a rigorous boarding school in Massachusetts that was something of
a shock to a boy who had never before attended school with other
children. He had never had any close friends of his own age and
had difficulty making them now. Physically slight, he attained little
distinction in athletics, which dominated the life of the school,
and went through his four years at Groton a lonely outsider.
Upon entering Harvard College in 1900, Roosevelt set out to make
up for what he considered his social failures at Groton. He worked
hard at making friends, ran for class office, and became president
of the student newspaper, the Crimson. He also became conspicuous
in his enthusiasm for his distant cousin Theodore Roosevelt, even
affecting some of the president's famous mannerisms, such as wearing
a pince-nez and frequent, hearty use of the well-known Roosevelt
exclamations "Delighted" and "Bully." But he
failed to achieve what he craved above all: election to the most
exclusive of the Harvard "final clubs," the Porcellian.
It was, he later said, "the greatest disappointment of my life."
During Roosevelt's first year at Harvard, his ailing father died,
and Sara Roosevelt took a house in Boston to be near her son. Devoted
to his mother, Franklin Roosevelt was always attentive and loving
toward her. Yet he was determined by now to create a life of his
own, and Sara's intrusive presence made him intensely secretive.
Indeed, he obscured from her the most important experience of his
Harvard years, his courtship of his distant cousin, Eleanor Roosevelt,
Theodore Roosevelt's niece, whom he had known slightly as a child.
The couple began to spend time together during the 1902 social season,
when Eleanor made her debut. Even though the handsome, charming,
and somewhat glib Franklin seemed to have little in common with
the quiet, reserved, and intensely serious Eleanor, the mutual attraction
grew. By the time Franklin graduated from Harvard in 1904, they
were secretly engaged. Despite the initial resistance of Franklin's
mother, they married in March 1905. They had a daughter and four
By the time of his marriage, Roosevelt was
a student at Columbia Law School. He never completed the requirements
for his degree, but he passed his bar exams and spent several years
desultorily practicing law in New York City. Already he was principally
interested in politics, and in 1910 he accepted the invitation from
Democratic party leaders in Dutchess County to run for the state
senate. The race seemed hopeless, but profiting from a split in
the Republican party and from his own energetic denunciation of
party bosses, Roosevelt won. He made few friends at first among
his fellow legislators, most of whom considered him naive and arrogant.
But he compiled a creditable if modest record protecting the interests
of Upstate farmers, his own constituents among them, and opposing
the New York City Democratic machine, Tammany Hall.
In 1912 Roosevelt won reelection easily, in part because he had
by then enlisted the aid of a politically knowledgeable journalist,
Louis M. Howe, who managed his campaign, taught him to drop many
of his aristocratic mannerisms, and helped him make alliances with
politicians of backgrounds very different from his own. Howe would
be indispensable to Roosevelt's career for the next twenty years.
Roosevelt did not serve out his second term in the legislature.
Early in 1913 Woodrow Wilson, the new Democratic president whom
Roosevelt had energetically supported, offered him an appointment
as assistant secretary of the navy. Roosevelt eagerly accepted,
not least because it was from that same position that Theodore Roosevelt
had launched his national political career fifteen years earlier.
Franklin enjoyed the new job and the Washington social life that
came with it, and he plunged into both with a sometimes reckless
enthusiasm. In the Navy Department, he was brashly assertive and
often almost openly insubordinate to his remarkably tolerant superior,
Secretary of the Navy Josephus Daniels; but with the help of Howe,
Roosevelt ran the day-to-day affairs of the fast-growing department
with reasonable efficiency. He also kept his hand in New York politics
and tried unsuccessfully in 1914 to seize the Democratic nomination
for the U.S. Senate away from the Tammany candidate. From that experience
he concluded that, while hostility to Tammany was good politics
in Dutchess County, it was a serious, perhaps insurmountable, obstacle
to statewide and national success. From 1914 on he worked to develop
cordial relations with Tammany leaders.
Assistant Secretary of the Navy
Roosevelt lobbied strenuously for preparedness
during the years preceding World War I and for American entry into
the war in 1917. Later he successfully promoted the laying of a large
barrage of antisubmarine mines in the North Sea, supervised the production
of small vessels to defend the American coasts, and intruded himself
into deliberations of naval strategy and tactics that were not normally
the province of the assistant secretary. He also became involved,
perhaps inadvertently, in a controversy that would haunt him for years.
In 1918 the navy began an attempt to "clean up" the area
around the large naval base at Newport, Rhode Island, after receiving
complaints about prostitution and homosexuality. Enlisted men were
dispatched to entrap sailors and others, including a prominent Protestant
clergyman, in homosexual acts. The scandal that resulted when the
operation became public simmered for years, and in 1921 a Senate investigation,
dominated by Republicans, openly chastised Roosevelt for his part
in the operation.
In the meantime, Roosevelt was experiencing a personal crisis that
was even more threatening to his future. As a fixture in Washington's
active social life, he often found himself at odds with his wife,
to whom social events were seldom less than an ordeal. Perhaps as
a result, he found himself drawn to the poised, attractive, gregarious
young woman whom Eleanor hired as her social secretary, Lucy Mercer.
Franklin and Lucy formed a romantic relationship, which continued
until Eleanor discovered it late in 1918. Franklin refused Eleanor's
offer of a divorce and promised to end all relations with Lucy Mercer,
a promise he broke many years later when, during World War II, he
began to see her occasionally again. Eleanor was deeply wounded and
withdrew from any real intimacy with her husband. Their marriage survived
on the basis of shared public commitments and residual respect and
affection, but from 1918 on they lived increasingly separate lives.
Despite the occasional travails of his Washington experience, Roosevelt
emerged from his eight years in the Navy Department with a significantly
enhanced reputation, which, combined with his famous name, made him
immediately attractive to national Democratic leaders. In 1920 he
secured the party's nomination for vice president on the ill-fated
ticket headed by Ohio governor James M. Cox. Roosevelt campaigned
energetically and at times rashly, such as when, in defending the
League of Nations, he falsely claimed that he had written the constitution
of Haiti and thus had that nation's vote "in his pocket."
Despite the Democrats' crushing defeat, he emerged with little of
the blame for it and with many new friends among party leaders.
Effects of Polio and Permanent Paralysis on Roosevelt's Life
In 1921 Roosevelt returned to private life. He became a vice president
of a bonding company and formed a legal partnership in New York, intending
all the while to focus primarily on politics. In August 1921, however,
a personal disaster seemed to shatter all his hopes. He developed
polio while at Campobello Island, his family's summer home, and within
days he had lost the use of both of his legs and was in excruciating
pain. Months later his doctors told him that he would never walk again.
But Roosevelt refused to believe them, and he spent most of the next
seven years in a futile search for a cure, trying innumerable forms
of therapy and becoming particularly attached to the spa-like baths
he discovered in Warm Springs, Georgia. There he spent much of his
personal fortune buying an old resort hotel and converting it into
a center for polio patients. Eventually he became at least partially
reconciled to his continuing paralysis and learned to disguise it
for public purposes by wearing heavy leg braces, supporting himself
with a cane and the arm of a companion, and using his hips to swing
his inert legs forward. So effective was this deception (and so cooperative
was the press in preserving it) that few Americans knew during his
lifetime that he was largely confined to a wheelchair.
Roosevelt almost never talked about his own feelings, least of all
about the impact of paralysis on him; but contracting polio was clearly
one of the most important events of his life. His determination to
hide his condition from those around him probably strengthened what
was already his natural inclination to dissemble, to hide behind an
aggressive public geniality, and to reveal as little about himself
as possible. Eleanor Roosevelt later claimed that polio also gave
him patience and increased his understanding of "what suffering
meant." The ordeal certainly made him more serious and determined,
and gradually he transferred his steely new resolve away from his
efforts to walk and toward an attempt to resume a public career.
After the polio attack, Sara Roosevelt believed that her son should
retire from politics and return to the family estate at Hyde Park
to live as a gentleman invalid. Both Eleanor and Howe supported Franklin's
own desire to resume a public life, and together they worked to keep
his name alive in New York politics. During much of the 1920s Roosevelt
maintained his ties to politics largely through correspondence, much
of it orchestrated by Howe, and through the increasing public activities
of his wife. He developed a close political although never personal
relationship with Al Smith, the Tammany-supported governor of New
York. He also forged ties to other groups in the Democratic party
and presented himself as a bridge between its two bitterly divided
wings: one, represented by Smith, largely eastern, urban, Catholic,
and ethnic; the other, represented by William Jennings Bryan and William
McAdoo, largely southern, western, rural, and Protestant.
Governor of New York
At the 1924 Democratic National Convention,
a grim-faced Roosevelt dragged himself laboriously to the podium on
crutches and placed Smith's name in nomination. In 1928, when he again
nominated Smith for president, he "walked" to the podium
without crutches, one hand holding a cane and the other clutching
his son's arm. It was an important personal triumph, signaling his
readiness to resume an active political career, which he did more
quickly than even he had expected. After months of resisting pressure
from Smith and other party leaders to run for governor of New York,
he finally agreed in 1928. He campaigned energetically and buoyantly,
partly to dispel the persistent rumors of weakness and poor health.
Although Smith lost his home state to Herbert Hoover in the presidential
contest by 100,000 votes, Roosevelt won his own race by a narrow margin.
Roosevelt's four years as governor coincided with the first three
and a half years of the Great Depression. More quickly than most other
political leaders, he concluded that the economy would not recover
on its own and "that there is a duty on the part of government
to do something about this." Roosevelt pushed for a series of
modest reforms that included measures to develop public electric power,
lower utilities rates, and reduce the tax burden on New York farmers.
Later he also created a state agency to provide relief to the unemployed
and began calling for national unemployment insurance and other government
programs to assist the jobless. He was careful not to seem reckless
or radical. He criticized President Hoover for failing to balance
the budget and denounced excessive government intervention in the
From the moment of his landslide reelection as governor of New York
in 1930, Roosevelt was the obvious front-runner for the 1932 Democratic
presidential nomination. With the help of Howe and James A. Farley,
a talented New York political organizer who had helped orchestrate
Roosevelt's two gubernatorial campaigns, he accumulated pledges from
delegates throughout the country, particularly in the South and the
West, where antipathy to Smith, Roosevelt's chief rival for the nomination,
was strong. Even so, he approached the Democratic National Convention
far from certain of nomination. Smith had defeated him in the Massachusetts
primary, and House Speaker John Nance Garner of Texas had won the
California primary. Their delegate strength, when combined with that
of other candidates and favorite sons, denied Roosevelt through three
ballots the two-thirds vote the Democratic party then required for
nomination. On the fourth ballot Garner, after being promised the
vice presidential nomination, released his delegates, and those additional
votes gave Roosevelt the margin he needed. The following day he broke
with tradition and flew to Chicago to become the first Democratic
candidate ever to appear personally before a convention to accept
its nomination. In his speech to the delegates, he pledged "a
new deal for the American people," and within weeks the phrase
became a widely accepted label for his program.
A New Deal
Roosevelt's task in the fall campaign was
a relatively simple one: avoid doing anything to alarm the electorate
while allowing Hoover's enormous unpopularity to drive voters to the
Democrats. He traveled extensively giving speeches filled with sunny
generalities; he was perpetually genial; and he continued to criticize
Hoover for failing to balance the budget and for expanding the bureaucracy.
But he only occasionally gave indications of his own increasingly
progressive agenda. On one such occasion, at the Commonwealth Club
in San Francisco, he outlined in general terms a new set of government
responsibilities: for an "enlightened administration" to
help the economy revive, to distribute "wealth and products more
equitably," and to provide "everyone an avenue to possess
himself of a portion of that plenty sufficient for his needs, through
his own work."
The presidential campaign brought together people who had guided Roosevelt's
career in the past and people who would shape his presidency thereafter.
Howe and Farley remained his principal political strategists, Eleanor
Roosevelt continued to serve as a surrogate for her husband, and Marguerite
"Missy" LeHand, Roosevelt's personal secretary since 1920,
remained the one constant, daily presence in his life. The 1932 campaign
also brought him into contact with new aides and advisers, perhaps
most notably a group of academic advisers dubbed the "brain trust"
by reporters. Chief among them were three Columbia University professors,
Raymond Moley, Adolf A. Berle, Jr., and Rexford G. Tugwell, who helped
write his campaign speeches, including the Commonwealth Club address,
and, more important, began developing ideas for his presidency.
Roosevelt won handily with 57 percent of the popular vote to Hoover's
40 and with 472 electoral votes to Hoover's 59. Democrats also won
solid control of both houses of Congress. Most observers interpreted
the results less as a mandate for Roosevelt, whose plans remained
largely unknown to the public, than as a repudiation of Hoover. Many
skeptics still shared Walter Lippmann's famously dismissive view of
Roosevelt as "a pleasant man who, without any important qualifications
for the office, would very much like to be president."
In the four months between his victory and his inauguration, Roosevelt
did little to dispel those doubts. The depression worsened considerably,
with more than 25 percent of the workforce unemployed, and early in
1933 a series of bank failures deepened the crisis. President Hoover,
conservative Democrats, and leading business figures all urged the
president-elect to restore confidence by pledging himself to fiscal
and monetary conservatism. Roosevelt refused while offering few clues
to his own plans. The most dramatic event of his "interregnum"
was an attempted assassination in Miami in February, in which Roosevelt
was not injured but the mayor of Chicago was killed. The president-elect
responded to the incident with the same unruffled, genial calm he
had displayed since the election.
Roosevelt assumed the presidency at a moment of great crisis for the
nation. Millions were unemployed or underemployed, the agricultural
economy was nearly in chaos, industrial production had fallen dramatically,
new capital investment had almost ceased, and the banking system had
become paralyzed as a widening panic drained banks of their deposits.
The governor of Michigan had ordered all the banks in his state closed
in mid-February, and by the beginning of March almost every state
in the nation had placed some restrictions on banking activity.
The banking crisis provided the ominous backdrop both for Roosevelt's
inauguration and for his first days in office. His inaugural address
offered words of assurance, "The only thing we have to fear is
fear itself," and stern warnings: "Rulers of the exchange
of mankind's goods have failed through their own stubbornness and
their own incompetence. . . . The money changers have fled from their
high seats in the temple of our civilization." It was less a
diagnosis of the national condition than a direct response to the
banking crisis itself, and his first days in office were devoted largely
to solving that crisis. On 6 March 1933 he ordered every bank in the
nation closed--a "bank holiday," as he euphemistically described
it. Three days later Congress met in special session to consider an
emergency banking bill, drafted so hastily by holdovers from the Hoover
administration that members did not even receive printed copies of
it. Both Houses passed it, and the president signed it the same day.
Stronger banks could now reopen with promises of government assistance;
weaker ones remained closed until Treasury Department examiners could
assure their viability. This was a modest and essentially conservative
action, but it was enough to stop the panic. Nearly three-quarters
of the nation's banks reopened within three days of the measure's
Roosevelt also contributed to the restoration of calm on 12 March
with the first of his avuncular "fireside chats" over national
radio, during which he explained the provisions of the banking bill
in simple terms and offered comforting assurances that it was "safer
to keep your money in a reopened bank than under your mattress."
The president continued to use radio throughout his administration
and thus became the first national leader whose voice was a part of
the country's everyday life.
Roosevelt promised in his 1932 campaign that he would end the deficits
that had plagued the Hoover administration and restore a balanced
budget. This he never did, and eventually he would come to consider
deficit spending a useful and necessary response to recession. In
1933, however, he remained committed to fiscal orthodoxy, and on 10
March he asked Congress to pass legislation cutting government salaries
and veterans' benefits. Both Houses passed the Economy Act within
days, despite protests from some progressives who argued correctly
that the measure would add to the deflationary pressures on the economy.
The "Hundred Days"
The New Deal soon departed from these conservative
beginnings. Over the next three months, known then and later as the
"Hundred Days," Roosevelt won passage of a series of bills
that began to transform the role of the federal government in the
workings of the nation's economy. The result was not a "revolution"
as some liked to claim, but it was a significant turning point in
the evolution of the American state. Roosevelt drew heavily from the
progressive traditions with which he had grown up and in which his
principal advisers had been schooled, and he also responded to genuinely
new ideas born of the unprecedented problems of the Great Depression.
In the end, the New Deal was an amalgam of many different ideologies
with no single, consistent rationale. Roosevelt's only solid commitments
were to what he called "bold, practical experimentation"
and, of course, to his own political survival.
The crisis of the farm economy spurred the first of the innovative
New Deal reforms, a comprehensive farm bill, the Agricultural Adjustment
Act. Signed in May 1933, the new law reflected the longstanding demands
of many of the leading farm organizations for government support for
farm prices. The Agricultural Adjustment Administration (AAA), which
the legislation created, helped farmers limit production of basic
commodities; over production, farm experts agreed, was one of the
principal reasons for tumbling agricultural prices. The AAA also created
subsidies for farmers who left land idle. Much of the administration
of the program fell into the hands of the American Farm Bureau Federation,
which represented mostly commercial farmers. Unsurprisingly, therefore,
the AAA tended to favor larger producers and weaken smaller ones.
While farm income rose by almost 50 percent in the next three years,
the dispossession of small farmers, tenants, and sharecroppers continued
and even accelerated. Subsequently the New Deal experimented with
a series of programs designed to help these marginal farmers, including
the Resettlement Administration, established in 1935, and the Farm
Security Administration, created in 1937, but the movement of the
agricultural economy toward large-scale commercial farming continued
inexorably. In 1936 the Supreme Court invalidated the original Agricultural
Adjustment Act, declaring that Congress had no authority to compel
individual farmers to reduce their acreage. The administration preserved
the bill's major provisions in slightly altered form through the Soil
Conservation and Domestic Allotment Act of 1936 and the Agricultural
Adjustment Act of 1938, and federal support for farmers continued,
in much the same form the New Deal created, through the rest of the
Another major concern during the Hundred Days was the health of the
industrial economy. The U.S. Chamber of Commerce, Gerard Swope of
General Electric, and other leading businessmen and industrialists
urged the government to suspend the antitrust laws and allow corporations
to work together to stabilize prices and production, forming a cooperative
"associationalism" policed in some modest way by the government.
In June 1933 the New Deal responded to these appeals and the demands
of other constituencies with the National Industrial Recovery Act
(NIRA), one of the largest and most complicated pieces of legislation
in American history to that point. Roosevelt called it "the most
important and far-reaching legislation ever enacted by the American
The NIRA established a National Recovery Administration (NRA), headed
by the flamboyant Hugh Johnson, a retired general who had directed
the selective service system during World War I. Its most important
task was persuading the industrialists in major industries to join
together under "code authorities" roughly analogous to the
trade associations many of them had created in the 1920s and earlier.
Through the code authorities, industries established price floors,
production restrictions, and employment standards to check deflation
and restore prosperity. The codes thus produced, when approved by
the NRA, were to have the force of law and were to be enforced through
governmental sanctions. In addition, Johnson created a public relations
campaign behind a set of largely voluntary "blanket codes"
for all the employers not covered by specific code authorities. The
blanket code established a minimum wage of 30 to 40 cents an hour
and a maximum work week of 35 to 40 hours.
Initially the NRA was successful in creating public enthusiasm for
the new program. The agency's symbol, the Blue Eagle, soon appeared
in shop windows, on banners, and in public parades and demonstrations
around the country. But the NRA was less successful in solving the
problems of industrial production. Administratively unprepared for
the enormousness of its task, the agency floundered as it tried to
enforce the codes. Once it became clear that large producers would
dominate the code-making process, smaller businesses--many of which
relied on lower prices to be able to compete with larger firms--complained
loudly about their deteriorating positions. Critics also objected
to artificially raised prices, which in a depressed economy tended
to dampen demand and reduce production. Organized labor protested
the limited implementation of NIRA's Section 7a, which guaranteed
workers the right to organize and bargain collectively. This stimulated
an upsurge in trade union membership, but the lack of enforcement
provisions and the administrators' disagreements about the section's
requirements ensured that few employers were willing to recognize
and bargain with the unions.
By the end of 1933 the failure of the NRA was already becoming clear.
In 1934, after an external review board chaired by Clarence Darrow
charged that the agency was dominated by big business and was encouraging
monopoly, Roosevelt pressured Johnson to resign. Johnson's successors,
however, made little progress in solving the NRA's problems, and in
May 1935 the Supreme Court declared the NIRA unconstitutional. The
president charged that in doing so the Court had adopted a "horse-and-buggy"
interpretation of the Constitution. He was rightly concerned, for
the Court's narrow construction of the Interstate Commerce Clause
and its strict view of the limits on executive power called many other
New Deal measures into question. Even so, the nullification of the
NRA itself rescued the president from a failed experiment.
Roosevelt's first year in office produced other significant initiatives.
The Tennessee Valley Authority, the culmination of years of progressive
efforts to promote the development of public power, combined an ambitious
program of flood control and regional development with the creation
of large, government-owned hydroelectric power plants. The Civilian
Conservation Corps created camps in national parks and forests and
other nonurban settings where young, unemployed men from the cities
found employment and training. The Federal Emergency Relief Administration
and the Civil Works Administration provided funds to relief agencies
and jobs for the unemployed. The Securities and Exchange Commission
began regulating the stock market. A second banking reform bill established
federal insurance of bank deposits.
By the end of 1933 economic conditions were showing signs of modest
improvement, but Roosevelt was reaping political rewards far out of
proportion to the actual results of his programs. His carefully cultivated
relations with the Washington press corps, including weekly informal
news conferences in the Oval Office, ensured that he received largely
favorable news coverage despite the animus he attracted from most
newspaper publishers. Above all, he conveyed an image of energy and
compassion--a sharp contrast to the cautious, dour image Hoover had
conveyed in his last years in office.
Within the White House itself, Roosevelt created an atmosphere of
jovial camaraderie among the small circle of aides and advisers on
whom he relied, while his relationship with his wife remained distant.
Even when they were together in the White House, they lived largely
separate lives, and the first lady communicated with her husband on
public issues largely through memos. The president's most intimate
companion was LeHand, who served as his secretary and as a surrogate
wife and household manager when Eleanor Roosevelt was away. Roosevelt
relied heavily on LeHand for companionship and support but probably
not for romance. Several of the president's children came to live
at the White House at various times, and some of them worked for him
while they were there. Yet he remained, in the end, the same reserved,
self-contained, and somewhat mysterious figure he had always been--to
no one more than to those who knew him best.
The president's disability meant that he left the White House relatively
seldom and traveled less than other presidents normally did. He continued
to vacation occasionally in Warm Springs, to take cruises on the Potomac
and the Chesapeake, and to make regular visits to his home in Hyde
Park, where his mother still lived. Periodically he embarked on elaborately
orchestrated "fact-finding" missions around the country,
traveling on specially fitted trains and in specially designed automobiles
with aides, who created elaborate subterfuges to hide his disability.
The press was willingly complicit. Never during Roosevelt's public
life did any newspaper or magazine publish a photograph of him in
a wheelchair or being lifted in or out of a car.
By the middle of 1934 the New Deal, for which
many had had great hopes in 1933, was experiencing serious difficulties.
The economy was not improving fast enough to meet public expectations,
resulting in the growth of popular and radical protest movements accompanied
by one of the largest waves of strikes in the nation's history. These
developments were jeopardizing the president's political future, and
beginning in the spring of 1935 Roosevelt responded with a series
of new proposals that historians have sometimes called the "Second
New Deal." Dominating it were two landmark pieces of legislation
that remain among the New Deal's principal legacies.
The Social Security Act of 1935 created the framework for the nation's
first national system of social insurance and public assistance. More
specifically, it created an old-age pension system funded by contributions
from workers and employers, a system of unemployment insurance funded
by employers alone, and several programs of social welfare supported
by ordinary public funds for such particularly needy groups as single
mothers with children in the home, the elderly poor, and the disabled.
In operation it provided the framework for America's version of the
modern welfare state.
The National Labor Relations Act of 1935, better known as the Wagner
Act because Senator Robert Wagner of New York was the bill's principal
sponsor, reaffirmed the guarantee of workers' right to bargain collectively
as first stated in the now defunct NIRA. It also provided for enforcement
of that right by creating the National Labor Relations Board, empowered
to compel employers to recognize and bargain with unions that had
won legitimate elections among a firm's workers.
Also in 1935 the New Deal launched the most extensive and innovative
program of work relief in American history to that date, the Works
Progress Administration. Directed by Harry Hopkins, this agency kept
an average of 2.1 million workers employed between 1935 and 1941 and
was responsible for constructing a remarkable number of public buildings
and facilities. Tax reform, utilities regulation, and other measures,
some of them largely symbolic, were also part of this new wave of
The Second New Deal did not end the depression,
but it did provide crucial short-term and long-term protections to
large groups of Americans. In addition, it revived Roosevelt's political
fortunes. In the 1936 presidential election, he faced the Republican
governor of Kansas, Alf Landon, a moderate conservative with a dull
public presence, and a third-party challenge from Congressman William
Lemke of North Dakota, the hapless candidate of the short-lived Union
party. Roosevelt campaigned energetically and effectively, and he
won by an unprecedented landslide: 61 percent of the popular vote,
the electoral votes of every state except Maine and Vermont, and increased
Democratic majorities in both Houses of Congress. The election displayed
clearly the fundamental political realignment the New Deal had created.
The Democratic party now had the support of a broad coalition of southern
and western farmers, the urban working class, the poor and unemployed,
the black communities of northern cities, traditional progressives,
and committed new liberals. This "New Deal coalition" would
dominate American politics for a generation.
Few could have imagined in the glow of the November election how quickly
the Roosevelt administration would move from its triumph into a quagmire
of frustration and defeat. In February 1937, emboldened by his apparent
mandate, Roosevelt introduced a Court "reform" plan designed
to give him the authority to appoint additional, sympathetic justices
to the Supreme Court, which he feared would otherwise invalidate virtually
all of the legislative achievements of his first term. The "Court-packing"
bill, as it quickly became known, was intensely controversial and
energized the president's conservative opposition. Congress defeated
it, humiliating the president in the process. But the Court itself,
in the face of this assault, prudently moved toward the center and
became more amenable to New Deal programs. At about the same time,
Roosevelt also supported an ambitious proposal to reorganize the executive
branch of the federal government, which his opponents charged was
an attempt to consolidate still more power in the hands of the president.
They defeated the original proposal in Congress and forced him to
settle for a much more modest bill in 1939.
Most damaging of all to the administration was a serious recession
that began suddenly in August 1937 and quickly wiped out most of the
painfully won economic gains of the previous four years. The collapse
was especially traumatic to New Dealers because it came at a point
when they had begun to believe that the depression was over. Now,
confronted with the hollowness of those claims, the president joined
in an agonizing reappraisal of his policies and eventually launched
two important new initiatives.
One was a newly energetic effort to combat "monopoly power."
Opposition to monopoly had been a staple of New Deal rhetoric, although
seldom of action, in 1935 and 1936, and now some of the most committed
New Dealers convinced the president that the recession was a result
of a deliberate effort by "economic royalists" to sabotage
the economy--a "capital strike," as some called it. Roosevelt
responded by calling for the creation of a new commission to investigate
economic conditions. The Temporary National Economic Committee spent
over three years studying the effects of monopoly power, but its final
report, released after World War II had begun, had no effect on public
policy. In addition, Roosevelt's new director of the antitrust division
of the Justice Department, Thurman Arnold, began making more energetic
use of the antitrust laws than had any of his predecessors. But Arnold's
experiment, too, came to an end during the war.
At the same time, Roosevelt responded to pleas from liberal economists
and others who argued that the recession was a result of the significant
reductions in government spending he had approved early in 1937. In
the spring of 1938, to the chagrin of Secretary of the Treasury Henry
Morgenthau, Roosevelt abandoned further efforts to balance the budget
and secured emergency appropriations of $5 billion in spending and
loans for relief and public works. It was the first time a president
had explicitly endorsed the idea that stimulating mass consumption
through deficit spending could promote economic growth. Ultimately
the idea that federal fiscal policy was an effective tool by which
government could regulate the economy, an idea associated with the
British economist John Maynard Keynes, became one of the New Deal's
most important policy innovations and one of its most significant
legacies. Also in 1938 Roosevelt won passage of the Fair Labor Standards
Act, which established a minimum wage, created a maximum forty-hour
work week, and abolished child labor. It, too, was in part an effort
to stimulate economic growth by increasing mass purchasing power.
The Failures and Achievements
of the New Deal
By the end of 1938 Roosevelt was only about
halfway through his presidency, but the New Deal he had created was
close to completion. In retrospect, it has often seemed as significant
for the things it did not do as for the things it achieved. It did
not end the Great Depression and the massive unemployment that accompanied
it; only the enormous public and private spending for World War II
finally did that. The complaints of conservative critics notwithstanding,
it did not transform American capitalism in any fundamental way. Except
in the fields of labor relations and banking and finance, corporate
power remained nearly as free from government regulation or control
in 1945 as it had been in 1933. The New Deal did not end poverty or
significantly redistribute wealth, nor did it do very much, except
symbolically, to address the principal domestic challenges of the
postwar era, among them the problems of racial and gender inequality.
Despite the commitment to civil rights of Eleanor Roosevelt and other
New Deal officials such as Secretary of the Interior Harold Ickes,
the president shied away from issues that he feared would divide his
party and damage his ability to work with Congress.
Even so, the achievements of the Roosevelt administration rank among
the most important of any presidency in American history. First, the
New Deal created new state institutions that significantly and permanently
expanded the role of the federal government in American life. The
government was committed to providing at least minimal assistance
to the elderly, the poor, and the unemployed; to protecting the rights
of labor unions; to stabilizing the banking system; to building low-income
housing; to regulating financial markets; to subsidizing agricultural
production; and to doing many other things that had not previously
been federal responsibilities. As a result, American political and
economic life became much more competitive, with workers, farmers,
consumers, and others now able to press their demands upon the government
in ways that in the past had usually been available only to the corporate
world. Hence the frequent description of the government the New Deal
created as a "broker state," a state brokering the competing
claims of numerous groups. Second, the New Deal produced a political
coalition that sustained the Democrats as the majority party in national
politics for more than a generation after its own end. Finally, the
Roosevelt administration generated a set of political ideas, known
to later generations as New Deal liberalism, that remained a source
of inspiration and controversy for decades and that helped shape the
next major experiment in liberal reform, the Great Society of the
That the New Deal sputtered to something like a close in Roosevelt's
second term was in part because the political tides were turning against
him. In 1938 and again in 1942 the Democrats suffered considerable
losses in congressional elections, and the emerging conservative coalition
of Republicans and southern Democrats was capable of blocking almost
anything liberals proposed. The New Deal faded as well, however, because
of the president's growing preoccupation with the worst catastrophe
of the twentieth century, the spiraling global crisis that led Europe,
Asia, and ultimately the United States into World War II.
For the first five years of his presidency, foreign policy had been
a distinctly secondary concern to Roosevelt. Shortly after taking
office, he withdrew his support from the London Economic Conference,
which was seeking a global solution to depression-induced problems
of currency and trade. He was implicitly saying that the United States
would go it alone, and he then devalued American currency by weakening
its link to the gold standard. Subsequently he promoted American foreign
trade and, not unrelated, improved U.S. relations with Latin America
through a wide-ranging cluster of initiatives known together as the
"Good Neighbor Policy."
Still, as a Wilsonian, Roosevelt was an internationalist at heart,
as was his secretary of state, Cordell Hull, and from time to time
they tried to nudge the United States into a more active global role.
In 1935 Roosevelt asked the Senate to approve a treaty that would
allow the United States to join the World Court. Spirited opposition
from isolationists both in and out of Congress prevented ratification.
In 1937, in response to Japanese attacks on China, he made a vague
proposal to "quarantine the aggressors," only to be greeted
with such savage denunciations from much of the press and the public
that he drew back again. Although disturbed by the growing militarism
in Europe and Asia, he was as yet uncertain about what role the United
States could play in stopping it. In 1938, when British prime minister
Neville Chamberlain met with Adolf Hitler at Munich and ceded Czechoslovakia
to the Nazis in exchange for what turned out to be a hollow promise
of peace, Roosevelt cabled Chamberlain congratulations.
When war finally broke out in Europe in September 1939, Roosevelt
insisted that the conflict would not involve the United States, but
he took pains to differentiate his policies from those of Wilson in
1914. Whereas Wilson had insisted that the United States would be
neutral in "word and deed," Roosevelt declared, "This
nation will remain a neutral nation, but I cannot ask that every American
remain neutral in thought as well." His support for Britain and
its allies was clear and unequivocal from the start.
In the spring of 1940, as the war spread throughout western Europe,
driving the British and French armies from the Continent, public opinion
began to move slowly toward support for a more active American role
in the conflict. Roosevelt moved with it and at times somewhat ahead
of it. Despite organized opposition from powerful isolationist groups,
he managed to persuade Congress to repeal the Neutrality Acts it had
passed in the 1930s, thus making it possible for the United States
to begin selling weapons and other supplies to Britain. He formed
an extraordinarily intimate relationship with Britain's prime minister
Winston Churchill that facilitated increasing aid to Britain. In September
1940 Roosevelt traded fifty American destroyers to the British in
exchange for several British bases in the Caribbean. In December,
shortly after winning an unprecedented third term in the White House
by handily defeating Wendell Willkie, a prominent industrialist who
had secured the Republican nomination, Roosevelt proposed what he
called "lend-lease," a system designed to permit the nearly
bankrupt British to continue receiving armaments from the United States
without paying cash for them. Congress obliged him by passing the
Lend-Lease Act of March 1941.
Gradually American assistance to the Allies grew even more overt.
As German submarines made shipping material across the Atlantic increasingly
difficult, American naval vessels began patrolling the ocean and escorting
convoys of merchant ships. In August 1941 Roosevelt and Churchill
met aboard an American cruiser off Newfoundland and signed the Atlantic
Charter, a statement of war aims that called for an end to fascism
and a guarantee of national self-determination throughout the world.
In November 1941, shortly after Hitler invaded Russia, Roosevelt extended
lend-lease assistance to the Soviet Union, the first step toward forging
what would soon be an important wartime alliance.
In the meantime, the United States responded
to continuing Japanese aggression in China by imposing a trade embargo
on Japan and freezing Japanese assets in the United States. To meet
this threat to their oil supplies, the Japanese laid plans to seize
the oil-producing British and Dutch possessions in the Pacific. It
was there, Roosevelt and most other American officials assumed, that
Japan's next aggressive moves would be. The Americans had cracked
the Japanese codes and knew an attack on the territory of one of the
Western powers was coming. The intelligence information Washington
received could have, if properly interpreted, alerted the United States
to Tokyo's plans, but because no one anticipated that the Japanese
would launch so bold an effort, no one predicted what they actually
did. On 7 December 1941, without warning, a wave of Japanese bombers
struck the American naval base in Pearl Harbor, Hawaii, killing more
than 2,000 American servicemen and damaging or destroying dozens of
ships and airplanes. The next day Roosevelt traveled to Capitol Hill
to ask Congress for a declaration of war, which it passed within hours.
Three days later Germany and Italy, Japan's European allies, declared
war on the United States, and the American Congress quickly reciprocated.
The United States was now fully engaged in the largest war in history.
Roosevelt was somewhat more detached from day-to-day decision making
as a war leader than he had been as a domestic one. More than a year
before Pearl Harbor, he had appointed men of great stature to supervise
the military. Former secretary of state Henry Stimson was secretary
of war, and Frank Knox, a distinguished Chicago publisher of strong
internationalist credentials, was secretary of the navy. Both men
were Republicans, and indeed Roosevelt made strenuous efforts throughout
the war to attract bipartisan support for his policies, even to the
point of permitting and at times encouraging the departure from government
of New Deal liberals. During the war Roosevelt tended to defer to
the judgment of his military leaders, but he participated actively
and often decisively in major strategic decisions.
Almost immediately after Pearl Harbor Roosevelt made what was perhaps
the most important of those decisions: although the United States
would wage a two-front war, it would concentrate first on the conflict
in Europe. Disagreement quickly emerged, however, over the best strategy
for defeating Germany and Italy. The American leaders wanted to devote
virtually all of their resources to preparing an invasion across the
English Channel into France, the most direct route to Germany. Churchill
and other British leaders, remembering the terrible carnage in France
during World War I, preferred to delay the major invasion and begin
with smaller incursions along the periphery of the Nazi empire. Roosevelt
finally sided with Churchill and supported the British proposal to
engage the Germans first in the territories they had seized in North
Africa. An Allied invasion of North Africa began in November 1942.
After Anglo-American forces drove the Germans from Africa, they continued
across the Mediterranean, invading Sicily and Italy in the summer
Although American forces in the Pacific received less than a fifth
of the resources the nation devoted to the war in these early years,
they pursued an active strategy against the Japanese. Having been
driven from virtually the entire Pacific west of Hawaii (including
the Philippines) within a few months of Pearl Harbor, American forces
began striking back and soon won two critical victories--first in
the battle of the Coral Sea in May 1942 and then in the battle of
Midway a month later. From there the United States launched a series
of offensives against Japanese outposts in the Solomon Islands just
north of Australia, the first in several prolonged and savage island
campaigns that continued for the rest of the war.
Throughout 1942 and 1943 Roosevelt was preoccupied with the ongoing
debate over how and when to launch an Allied invasion of France. The
Soviet Union was now bearing the brunt of the German war effort. Soviet
leader Joseph Stalin argued that Anglo-American forces must move quickly
to open another front in Europe. At a meeting with Churchill in Casablanca,
Morocco, in January 1943, Roosevelt tried to mollify Stalin by declaring
his support for nothing less than "unconditional surrender"
by the Axis. In other words, the United States and Britain would not
agree to a separate peace and leave the Soviet Union to fight alone.
In November 1943 Roosevelt and Churchill traveled to Teheran for their
first meeting with Stalin. By then the war in eastern Europe had turned
decisively in favor of the Soviet Union, which meant that Roosevelt
now had only limited leverage over Stalin. Even so, Stalin agreed
to enter the Pacific war after the fighting in Europe came to an end,
and Roosevelt and Churchill promised to launch the long-delayed invasion
of France in the spring of 1944. The meeting produced less agreement
on other matters, but the Western leaders seemed inclined toward arrangements
that would allow the Soviet Union to keep the areas of Poland it had
seized in 1939.
Shaping the Postwar World
Roosevelt turned his attention increasingly to the shape of the postwar
world. He persuaded twenty-six nations to sign the United Nations
Declaration, a statement of principles based on the Atlantic Charter.
In July 1944 he convened an international monetary conference at Bretton
Woods, New Hampshire, that created the International Monetary Fund,
charged with stabilizing global currencies, and the International
Bank for Reconstruction and Development, to assist the shattered nations
of Europe and Asia in rebuilding after the war.
At home, massive wartime spending had ended the depression and launched
a period of vigorous economic growth, while a new set of war mobilization
agencies--staffed, like the comparable agencies in World War I, largely
by corporate executives and attorneys borrowed from their firms--channeled
manpower, materials, and capital into the production necessary for
the war. Roosevelt's liberal allies complained constantly, but ineffectually,
about the domination of the war effort by capitalists. Roosevelt promoted
no significant domestic reform legislation during the war, and in
1943 he was unable to prevent an increasingly conservative Congress
from dismantling many New Deal agencies. He did, however, support
an ambitious vision of a peacetime society in which the government
would ensure a minimal level of comfort and security for all Americans,
and he helped craft the Servicemen's Readjustment Act of 1944, or
the "G.I. Bill of Rights," which provided generous housing,
educational, and other benefits to veterans when the war ended.
Roosevelt was less receptive to the demands of the many Americans
who sought to harness the war effort to great moral causes. In 1940,
largely because of heavy pressure by African-American leaders, he
created the Fair Employment Practices Commission, the first federal
agency since Reconstruction that was actively engaged in the effort
to promote racial equality. He did not, however, respond to other
black demands, and the armed forces remained segregated throughout
the war. The president approved a proposal from military officials
on the West Coast to "intern" the thousands of resident
Japanese Americans, many of them native-born citizens, despite the
absence of any evidence that they were disloyal. Most of them were
not released until 1944. Even more troubling to many Americans, both
at the time and since, was the administration's apparent unwillingness
to take effective action to save the Jews of Europe, who were being
systematically exterminated by Nazi Germany. In fairness, the United
States could have done little other than win the war to save most
of the Jews imperiled by the Holocaust, but the government gave minimal
help even to those cases in which it might have made a difference
at the margins.
Campaign for a Fourth Presidential Term and Victory
Roosevelt agreed without any apparent resistance
to be the Democratic party's candidate for president for the fourth
time in 1944. Preoccupied with the war and in increasingly frail health,
he took only slight interest in the campaign. At the convention, he
acquiesced, almost passively, to the demand of party leaders that
he abandon his controversial vice president, Henry Wallace, and run
instead with the more moderate senator Harry S. Truman of Missouri.
After the convention, he did virtually no campaigning until rumors
of his declining health became a factor in the election. At that point
he rallied for several vigorous and effective appearances. He defeated
Governor Thomas E. Dewey of New York, a man he had come to despise,
with 53 percent of the vote.
One of the many reasons for Roosevelt's political resilience was that
the Allied war effort was by then clearly on the road to victory.
On 6 June 1944 Allied forces landed on the Normandy coast and began
a successful invasion of France. By August they had liberated Paris,
and by mid-September they had driven the Germans almost entirely out
of France. The invasion bogged down for a time later that fall, and
not until early spring 1945 did the Anglo-American advance on Germany
resume. Soviet forces also swept westward into central Europe and
the Balkans. In the Pacific, American forces captured almost all the
strategic islands east of Japan, retook the Philippines, and were
closing in on Japan itself. Unknown to all but a few, the United States
was by then far along in an effort Roosevelt had authorized early
in the war, the Manhattan Project, which detonated the first atomic
bomb two months after Roosevelt's death. There is little evidence
to suggest how he would have used the new weapon had he lived.
In January 1945, with victory in Europe apparently imminent, Roosevelt
traveled to Yalta for another meeting with Churchill and Stalin. Both
men were shocked at the president's wasted physical appearance, a
result of advanced arteriosclerosis that had been weakening him for
over a year, forcing him to live much of the time as a virtual invalid.
At Yalta, however, Roosevelt participated actively and capably in
the negotiations. The three leaders agreed on the postwar occupation
of Germany, the Soviet Union's participation in the Pacific war, and
the creation of what became the United Nations. But they could reach
no accord on other issues, most notably the future of Poland. Instead,
they papered over their differences with a series of weak and unenforceable
compromises. Roosevelt returned home still believing that he could
eventually reach some accommodation with Stalin. Even though he did
not realize it then, however, the outlines of the coming Cold War
were already visible at Yalta.
Both because of his failing health and because of the distortions
the war had caused in his family life, Roosevelt became even more
isolated during the war years than he had been before. His mother
died in 1941, his sons were serving overseas, and his wife traveled
almost constantly. LeHand suffered a debilitating stroke in 1941 and
died in 1944. The president turned for companionship to his daughter
Anna, to two adoring and unmarried cousins who came to live at the
White House, and to a rotating series of charming, attractive women
who deferred to him in a way Eleanor had never been willing to do.
He also began seeing Mercer (now Lucy Mercer Rutherford and a widow)
again, nearly thirty years after the unhappy end of their World War
Early in April Roosevelt left Washington for a vacation at his retreat
in Warm Springs, Georgia, accompanied by his cousins and several aides.
On 12 April he received a visit from Rutherford, who brought with
her an artist who wished to paint a portrait of the president. As
he posed for the portrait while working on papers at a small table
in his cabin, he suddenly looked up and complained of a "terrific
headache." Moments later he collapsed. He had suffered a massive
stroke, and he died several hours later.
In the half century after his death, Roosevelt's stature as one of
the major figures of the twentieth century did not diminish. Even
those critical of his achievements recognize their magnitude: the
reshaping of American government, the transformation of the Democratic
party, the redefinition of American liberalism, the leadership of
the United States through the largest war in world history, and the
reconstruction of America's relationship to the international order.
Such achievements were not his alone, of course. But it is only necessary
to look at some of those who contended with him for leadership of
the United States in the 1930s, and some of those who actually assumed
leadership of other major nations, to understand Roosevelt's critical
importance to the great changes that America experienced during his
unprecedented and never to be repeated twelve years
as its leader.
Alan Brinkley. "Roosevelt, Franklin Delano";
American National Biography Online Feb. 2000.
Copyright © 2000 American Council of Learned Societies.
Published by Oxford University Press. All rights reserved.
The Franklin D. Roosevelt Papers are housed in the Roosevelt Presidential
Library in Hyde Park, N.Y., along with the papers of many other
New Dealers. The Public Papers and Addresses of Franklin D. Roosevelt,
ed. Samuel Rosenman, published in two multivolume series (1938,
1941), contains speeches and other official documents through 1940.
Biographies of Roosevelt are numerous. Among the most important
are Frank Freidel, Franklin D. Roosevelt (4 vols., 1952-1973) and
Franklin D. Roosevelt: A Rendezvous with Destiny (1990); James MacGregor
Burns, Roosevelt: The Lion and the Fox (1956) and Roosevelt: The
Soldier of Freedom (1970); Geoffrey Ward, Before the Trumpet (1985)
and A First-Class Temperament (1989); and Kenneth S. Davis, FDR
(4 vols., 1972-1993). Among the many informative studies of the
New Deal are Arthur M. Schlesinger, Jr., The Age of Roosevelt (3
vols., 1957-1960); William E. Leuchtenburg, Franklin D. Roosevelt
and the New Deal (1963); Ellis Hawley, The New Deal and the Problem
of Monopoly (1966); and Alan Brinkley, The End of Reform (1995).
"Revisionist" studies of the New Deal are relatively few,
but among the more important are Barton Bernstein, "The New
Deal: The Conservative Achievements of Liberal Reform," Towards
a New Past, ed. Bernstein (1968); Thomas Ferguson, "Industrial
Conflict and the Coming of the New Deal: The Triumph of Multinational
Liberalism in America," The Rise and Fall of the New Deal Order,
ed. Steve Fraser and Gary Gerstle (1989); and Colin Gordon, New
Deals (1994). Major studies of Roosevelt's diplomacy include Robert
Dallek, Franklin D. Roosevelt and American Foreign Policy, 1932-1945
(1979), and Warren Kimball, The Juggler (1991). Doris Kearns Goodwin,
No Ordinary Time (1994), provides an intimate portrait of the Roosevelts
during World War II. For assessments of Roosevelt's posthumous legacy,
see Robert Eden, ed., The New Deal and Its Legacy (1985), and William
E. Leuchtenburg, In the Shadow of FDR (1983). Otis Graham and Meghan
Robinson Wander, Franklin D. Roosevelt: His Life and Times. An Encyclopedic
View (1985), is a valuable reference work.