Root and Branch on the wildcat strike of US postal workers in 1970 and its implications.
Notes on the postal strike - Stanley Aronowitz and Jeremy Brecher
A new labor movement is being born in America. It is the autonomous creation of the working class. It exists more potentially than actually, but its early seeds are appearing in wildcat strikes in the trucking, air transport, and mail communications industries. These wildcat strikes differ from most others in recent labor history. Unlike the sporadic outbreaks of worker militancy outside union sanction in individual plants, the recent strikes have been national walkouts independent of the official labor movement. They have had a demonstrated capacity, moreover, to withstand invocations of union leadership for orderly procedure, government threats of legal reprisal, and apparent lack of national coordination except the universal idea of direct action to meet felt needs.
For years, most American workers and radicals within the labor movement were convinced of the absolute necessity of central organization on a national level to meet the corporations or the government on an equal footing. The local patterns of trade union organization predominant during the first sixty years after the Civil War were deemed inappropriate to the monopoly stage of capitalism, in which large national corporations with chains of plants dotting the country dominated the political economy.
The validity of this point of view was reinforced by the apparent success of the CIO and the AF of L which unionized multioccupationally most basic industries in the United States. The early successes of collective bargaining to achieve higher wages, fringe benefits, and some measure of worker control over the conditions of labor were attributed to the emergence of a bureaucracy which mirrored, in both scope and power, the structure of corporate capital.
Now, however, the central bureaucracies which control the trade unions have become an obstacle to the development of struggles centered on the elementary needs of workers. The strike of postal workers brought to the surface the sclerosis of the trade unions, exposed their alliance with the government against the workers, and ushered in nascent forms of workers direct action independent of the trade unions.
Several years ago, radicals in the United States and in Europe were proclaiming the end of deprivation as a central thread of working class action. However cognizant of the need to understand class exploitation as primarily the exploitation of labor, its alienation at the point of production, radical theorists of neo-capitalism consistently underestimated the importance of understanding the crisis of contemporary capitalism as reflected in the antagonism between wages and profits. Nor have we fully understood the significance of state workers in the political economy.
The position that struggles for economic demands were eminently cooptable was a response to the specific condition of U.S. capitalism in the 50s and 60s. The familiar wage struggles consisted in the expiration of a contract, a union strike call, and a quick statement with a mild wage increase, which was easily passed on by the corporations to the workers in higher prices. To radicals, this process looked hardly more revolutionary than any other business transaction.
The postal strike was completely different. From the first it was illegal. It did not play by the rules of the game. It fought national and local union leaderships tooth and nail. It was undeterred by appeals to patriotism and national interest. It based itself on the power of the workers, not on the goodwill of the bosses. Far from integrating the workers into the system, the postal struggle opposed its central institutions.
Mr. Zip says: On Strike!
Nonetheless it was fundamentally a strike for higher incomes. Nor is it hard to understand why postmen should consider wage demands worth fighting for. Letter carriers make $6,176 to $8,442 annually. The Department of Labor considers $10,000 the minimum annual income for a family of four. Richard Nixon affirms postal workers have been underpaid for twenty-three years.
An index of the potential explosiveness of wage issues is the fact that the weekly earnings of the average non-farm, non-supervising worker in the private economy last year was approximately $2.00 less than the "grossly underpaid" postal worker.
This is not to say that wage demands are more important than others. In fact, it is wrong to oppose economic and non-economic demands. The real question is whether the struggle is conducted in a way which uses and increases the workers' power, their freedom of action.
The post office strike demonstrated that many groups now share the social position once reserved for blue collar industrial workers. The postal workers are underpaid and exploited in precisely the way the industrial workers are, and they clearly have a critical role in the functioning of society.
The use of troops and the application of the full legal powers of the state in both the mail and the rail struggles reveal the centrality of these functions to U.S. capitalism. Free movement of the mails and commodities are an absolute condition to the system's maintenance, much less its expansion. The government had no choice but to play out the alternatives to insure the resumption of rail and mail service. In the mail dispute, severe legal sanctions, such as congressional action to suspend the provisions of the rail labor act and invocation of compulsory arbitration, seemed sufficient, at first to dissuade the workers from direct action in disregard of union leaders and state decree. But the frustrations of postal workers built up over thirty years could not be suppressed through legal means alone.
Federal workers are completely dependent on congress for wage and benefit improvements, however infrequently enacted. The strike ban has always been held sacrosanct, however, by union leaders and the government. But the dual pressures of inflation and tedious work conditions with no significant upgrading opportunities became too much for postal workers who were forced to hold two jobs or go on supplementary welfare to support themselves and their families.
One of the more interesting features of the strike was the fact that many signals had been flashed to postal officials and the federal government long before the wildcat broke out. Stories in the daily press reported that postal workers were receiving public assistance to meet basic needs. Demonstrations and intensive lobbying activities had reached their high point immediately prior to the strike. Yet congress and the administration seemed powerless to act decisively to meet the income demands of the workers.
The Vietnam war, the permanent war economy, and the production of waste subsidized by federal expenditures appear to be logical explanations for the slow pace of government action to meet the modest wage demands of postal union officials. Beyond the fiscal crisis of the public sector induced by the direction of state spending stands the absolute refusal of corporate capital to reduce profits in order to support the public sector. On the contrary. Public services exist to support business. (Witness the absolute need to resume mail service in order to guarantee the flow of information to the stock market.) But the use of the taxing powers of the state to redistribute income between workers and capitalists turns back on itself. The increasing inefficiency of the mails in comparison with the increasing volume (itself a concomitant of capital expansion) is a direct result of the pauperization of the traditional public services.
Business has been unwilling to finance even those social costs immediately beneficial to itself. Instead, it demands that public services be turned over to the private sector. One of the issues raised by the administration in response to the strike was the necessity of postal "reform" as a condition for pay increases. The proposed postal reform was to abandon public ownership of the mail service and create a government-owned corporation to run the mails. This corporation, similar to quasi-public transit corporations, would be self-sustaining; that is, it would not receive funds from the general treasury in order to subsidize the postal system. Instead, operating costs would have to be met by operating income, essentially the price of stamps. Such a corporation could issue bonds to finance capital improvements, but the debt service would have to be paid for from operating income.
It is evident that as long as the war continues workers will bear its burden through lower real wages, higher taxes, unemployment, and inflation. In fact, real wages cannot be increased at the present time simply through strikes against one or another employer. This will have two effects on the labor movement. First, its actions will develop more and more into class actions, in response to the shifting of the burden of the war onto the workers. Second, its objectives will have to move beyond simple wage increases, which are impossible given present priorities. An end to the war and a shift in the tax burden will no doubt be two of the key demands. The program of the Alliance for Labor Action clearly reflects these tendencies. But the methods of struggle it proposes - union organizing and legislative lobbying - work only within a system which has sufficient resources to make concessions, not within a system which is already overextended and has its back against the wall.
The result is that the wildcat actions of the workers will more and more tend to become class actions and to become political. The pace of the process cannot be predicted - although a number of massive wildcat strikes for economic demands will probably be necessary before union leaderships are sufficiently discredited to permit workers' consciousness to become aware of the need to engage in broader class and political actions independent of the trade unions.
The smell of general strike was in the air during the week long postal strike. The Wall Street Journal explicitly warned of it; and even Rademacher, president of the letter carriers union, threatened to ask George Meany [!] to call a general strike if the government refused to make concessions. The national administration and the corporate bourgeoisie experienced this nightmare for the first time since the great industrial union walkouts in 1946, when nearly three million workers in most basic industries left their jobs in order to counter the decline in real wages wrought by rising prices following the second world war. There were differences however. In 1946 the "first round" wage strikes were officially sanctioned and controlled throughout by liberal industrial union hierarchies. At no time were the channels of collective bargaining in danger of being overrun. In the postal strike, the workers went outside the union framework. The national leadership opposed the walkout and was able to maintain the accountability of local union leadership to its command until the rank and file revolt pushed some local heads to support the strike.
A second feature of the mail strike was that it represented the first national wildcat in recent labor history. The strike spread from New York City to Nassau and Westchester counties, upstate New York, and nearby New Jersey and Connecticut almost immediately. Within a few days, the wildcat became national, as postal workers in Chicago, Detroit, Pittsburgh, Los Angeles, San Francisco, and other major centers took the initiative on their own despite the pleading, cajolery, and threats of local and national union chieftains. The day after the strike began, the press was already speculating about the possibilities of a general strike of federal employees. John Griner, president of the American Federation of Government Employees, was reported by the Washington Star to say "that he had to intervene personally to prevent several strikes by his locals." Nathan Wolkimir, president of the National Federation of Federal Employees, considered conservative by trade union standards, said that NFFE locals throughout the country had indicated they wanted to strike in support of the postal workers. Alan Whitney, executive vice-president of the unaffiliated National Association of Government Employees, gave a radio interview in which he reported: "We have been receiving phone calls from our various local presidents in various agencies throughout the government and throughout the country. They have watched events of the past days and have seen postal workers striking with a degree of impunity, and their question to us is, if they can do it, why can't we?"
Whitney, Griner, and other leaders of government employees unions gave a standard answer to this question. "We advised them that it was against the law" (Nathan Wolkimir). Undoubtedly this advice served to dissuade those militants who were ready to strike, but were still under the hegemony of their union leadership. Whitney reported to the White House that "tremendous pressure" was being put on the national office of his union to authorize strikes, especially "one of our biggest defense locals whose primary duty is to supply the war effort in Southeast Asia."
Simultaneously, municipal employees in San Francisco and Atlanta took to the streets. Similar demands informed their struggle. The up front public issue was the failure of congress to enact a substantial postal pay increase. The spectre haunting local governments haunted the Nixon administration as well. Even if the postal demands could be met, suppose all municipal, state, and federal employees were to join the struggle? Beyond this possibility was the danger that stalled teamster negotiations would result in a transportation wildcat, and perhaps trigger action by industrial workers. President Fitzsimmons of the Teamsters warned that "the natives are restless," an apparent attempt to force the trucking companies into a quick settlement, in order to forestall an event mutually undesirable to the unions, the companies, and the government.
There is little doubt that there was tremendous pressure from the ranks for widening the struggle beyond the postal strike, on the one hand, and various local disputes, on the other. National union leaders, taken aback by the temerity of the rank and file, recovered their composure. Simultaneously, they urged a back to work movement among the workers and attempted to force concessions from the administration. To the workers, the passivity of the AFL-CIO leaders was a clear indication of their fright at the implications of the postal walkout. They remained publicly mute throughout the one week strike, working "behind the scenes" to bring the Administration and congressional leaders to the bargaining table in order to settle the strike on the basis of a non-inflationary wage increase commensurate with cost of living increases since 1967. The postal settlement was in accord with the GE settlement. Union objectives were to recover lost ground, not to make substantial gains in real wages.
But the postal workers could not be herded back to work by peaceful means. Neither the promise of a piddling wage increase with a provision for achieving top rate after eight years instead of twenty years nor appeals to patriotism and the rule of law was successful. The President was forced to resort to his ultimate weapon: the use of troops as strike-breakers in the most militant section of the 180,000 walkout -- New York. Even though the troops were unarmed, the coercive implications of 25,000 of them in the post offices were not lost on the workers. Contrary to romantic leftist notions of impending bloodshed, most letter carriers were genuinely intimidated by the presence of the troops. They were unprepared, psychologically and militarily, to counter them effectively. The combination of congressional promises of a substantial wage increase and the massive presence of troops was sufficient to break the back of the strike for the time being.
But the end of the strike is not attributable merely to the show of state power and/or trade union constraint of the workers. More important than either of them was the failure of the strike to spread to other federal workers and beyond them to industrial workers. Short of a widening strike on generalized demands all struggles end in negotiated compromise. The material conditions existed for a wider strike. Conjuncturally, teamsters and auto workers face the most difficult negotiations in years. The current recession has produced stiffer corporate resistance to wage demands which would alter the relationship between profits and wages should international competition make it more difficult to offset wage increases by higher prices. Rank and file restlessness nevertheless has not reached the point of revolt against the trade unions and the employers in substantial parts of basic industry.
But the air controllers were ready and did strike. Workers in all public services, traditionally the least cohesive, are furious at the inability and unwillingness of the state to meet their needs. Implicit in their readiness to struggle for quantitative demands is their refusal to accept the sacrifices made necessary by the defense effort. The Vietnam war has lost its magic among workers who have been told they must subordinate their needs to national priorities - to militant anti-communism, that is, waged on their (the workers') backs. To be sure, there is no conscious rejection of these priorities. But the wildcat strikes evoked a decree of national emergency from the President amid arguments that vital services were being impaired. Most apparent was the inability of most workers to make an explicit connection between their strike and its ideological consequences not only in relation to the war, but more importantly, in relation to the legitimacy of the law as a determinant of social behavior. The workers acted subversively without bringing this subversion to consciousness. They had refused in practice to subordinate their own interests to the national interest, traditionally defined, but could not perceive it in its most general aspect, the struggle against state prerogative over them.
In some cities the union was able to maintain complete control. Postal workers in Washington, D.C., asked whether or not they were going to strike, often replied that they did not know. It was being decided for them by the officers; they were waiting, that is, for word from above. Meanwhile the president of the local announced on television that "the reason the D.C. workers are not out is that the local is doing everything possible to keep them from going out." When the membership arrived at the union hall for a meeting, which had been announced publicly, they found the hall locked and guarded. The leadership's attitude was we'll let you know when the national calls a strike. A general meeting of the local was not called until almost a week after the New York strike had begun. Wildcat advocates were not allowed to speak at the meeting. One of them had his union card torn up when he presented it to get in. (He never did get in.) A vote was announced. But what was being voted on was uncertain. The membership, it seems, was confused. The leadership, not at all. The meeting, it announced, had voted against a strike.
The wildcat forces met on the lawn in front of the main post office, but did not have sufficient strength to call a strike. They were weak, in part, because the strike nationally had peaked, and many other cities were going back to work. The local's stalling techniques had been successful. Two other conditions explain Washington's lack of militancy. First, the basic industry of the city is government, and government workers have no tradition of strikes; they have instead remnants of an ideology of "public service responsibility." Second, perhaps even more than elsewhere, D.C. postal workers are predominantly black, but D.C. has perhaps the most middle-class black community of any major city, based on access to government jobs and the security-consciousness which such jobs appeal to and generate. These same conditions were no doubt important in preventing the strike from spreading to other government workers in Washington. They will continue to retard as well such developments in the future.
In other major cities, however, black workers and young workers were the cutting edge of the walkout. In strike bound cities such as Detroit, Pittsburgh, Philadelphia, and New York, approximately 50 to 75 per cent of the workers are black, many of them in their twenties and thirties. Black workers predominate because government employment, particularly in the post office, is one of the few opportunities for black men to get steady work at wages over $100 a week. Many black workers in the post office are college educated. Many of them have received two or four year college degrees. Still, a job in the post office represents an important means of gaining job security and a regular income.
The strike suggests further that new relations between the black and white movements impend. When the issue is access to a few hundred skilled construction jobs in one city, black workers have no choice but to attack white workers' privileges; and the white workers, in turn, no choice but to defend their jobs. When the issue becomes a struggle by tens of thousands of workers against employers and the state, the need for solidarity becomes evident to everyone, and the special militancy of blacks becomes an extra force for unity, their special oppression an added fuel to the struggle against the common enemy. In a period of rising labor militancy, we may expect organizations with a specifically working class base, like DRUM, to become increasingly significant in the black movement; and those with a bourgeois or street-culture base, to become relatively less significant. Race contradictions will feed, not counteract, class contradictions.
The fact that the struggle for immediate demands never grew into a struggle for more general political and social demands is not a function of the failure of radical political education to make the connections ideologically. It is rather the inability of the postal workers to spread the struggle to other workers - other federal workers, to begin with. One reason for this failure was the relatively short duration of the strike, itself a consequence of its narrowness. Another was the fact that the impulses to struggle among federal workers who wished to join the strike were effectively emasculated by union bureaucrats to whom militants turned for leadership. The reliance of federal workers on union leadership remained an internal barrier to a widened struggle. The trade union consciousness among federal workers reflects the relative newness of union organization among them.
If radicals had a role to play in the postal strike, it was not primarily to educate the postal workers, but to agitate for conditions which provide the soil of revolutionary education - to agitate, that is, for widened struggle. Radicals in Washington did address other federal workers. [Footnote: Radicals in D.C. understood the need to support the strike, but were hindered in their efforts because there was no strike or organized wildcat movement to relate to locally. Responding to reports that government union officials were being bombarded by calls demanding strikes, one group of radicals distributed the leaflet "If They Did It, Why Can't We?" throughout eight government agencies. The mobilization distributed a leaflet relating the strike to the war throughout downtown Washington. The D.C. Labor Committee, the Young Patriots, and a radical union of D.C. sewer workers sent representatives to the wildcat meeting when it finally occurred. Nobody was able to respond effectively, however, to the actual situation of the D.C. postal workers. Nobody had substantive contacts with lower level government workers throughout the city.] But in most places, radicals contented themselves with organizing support demonstrations in town squares or with truncated attempts at "political education" without benefit of substantial contacts among postal workers. Most of the leaflets handed out to postal workers were politically "correct." They opposed the troop intervention; they connected the decline of real wages to the war and to corporate capitalist profit grabbing; and they tried to put forth a program of demands for postal workers, an incredible exercise in arrogance and abstract politics.
The brave attempts of organized radicals to be relevant to workers' struggles represents an advance over the situation several years ago. But radical consciousness still appears as an outside force. It still does not function as a tendency within the class. If radicals are to be relevant to workers, it is their vision, their description of alternatives to the modes of hierarchy which dominate the workers, which constitutes their primary contribution. Not their support for strikes at given levels. Nor their attempts to evolve demands or organizational strategies. The concrete aid radicals can render is to help widen the struggle to other industrial sectors, including those in which they are, themselves, employed.
The postal strike makes vivid what state socialism means for workers - conditions identical to or worse than those in the private economy. The post office is, after all, a "nationalized" enterprise. Yet its workers are paid worse than those in the private sector, dominated just as thoroughly, deprived even more of such fundamentals as the right to strike, and enmeshed in bureaucracy. If the socialism is viewed as a system in which "the government owns everything and everybody works for the government," it is hardly surprising that workers - and everybody else except potential government bureaucrats - shies away from it.
As the struggle of public workers become more important in the general movement of workers, the problem of redefining the socialist vision will become more acute for radicals. Clearly, the convergence of future state socialist solutions with contemporary state capitalism indicates the task for socialists. The socialist vision must be discussed as the control by the producers of their work and of all institutions of society. The wildcat strikes, directed against the corporations, the state, and their ideological apparatuses (e.g., the trade unions) imply an action critique of bureaucracy and hierarchy. Because state socialism preserves all the forms of capitalist domination and changes only the masters, it is not surprising that workers will have nothing to do with left wing alternatives which offer nothing better than a new bureaucracy.
In the postal workers strike, we can see a new labor movement struggling to free itself from the womb of the old one.
In the struggle between the wildcat movement and the unions, we can see the struggle between two principles of workers' organization. Here, decision-making in free assembly, willingness to struggle within and without the law, mobilization of the workers' real power, spreading solidarity, intransigence, self-direction, action; there, obedience, division of the workers from each other, groveling before power (institutional and individual), authoritarianism.
In the postal strike and in the rising labor discontent, we can see the development of a new alignment of forces in America. During the 1960s the forces of movement in society were blacks and students. The middle and working classes opposed them both and looked to quasi-fascist solutions of increasing state dictatorship to protect their positions. But as the postal strike shows, in a non-expanding economy, the state must oppose even the day-to-day struggles of the workers. The convergence of radicalized workers with the student and black movements will be long and difficult, but it is pushed forward daily by developments within society. Only within the context of such realignment is serious struggle against fascism and repression, let alone revolutionary advance, possible.
From Root & Branch No. 1 (1970), pp. 1-5