Race Power Policy Workbook PDF

Race, Power and Policy:
Dismantling Structural Racism
Education
Criminal
Health
Justice
Social and
Economic
System
Housing Employment
Community
Racialization distorts all parts of the System
Prepared for National People’s Action by the Grassroots Policy Project

Acknowledgements
This workbook has been developed by Sandra Hinson, Richard Healey and Nathaniel
Weisenberg at the Grassroots Policy Project. DeAngelo Bester, National People’s
Action and Charlene Sinclair, Union Theological Seminary, also contributed to this
workbook.
We gratefully acknowledge that the Spanish translation of the workbook is by Arturo

Clark at National People’s Action.
In addition, we have included a worksheet developed by Connie Heller, a summary of

targeted universalism, based on the work of john powell, the Kirwan Institute, and an
exercise from Greg Pehrson.
We wish we could more thoroughly acknowledge all the contributions to racial justice
work that are taking place. Suffice it to say this workbook builds upon decades of work
that has been done and that continues to be done by countless organizers and leaders
in the struggles for racial justice. We hope our workshops and approaches will add to
and enrich our collective practices for racial justice.
Please send your questions, suggestions and feedback to

shinson@grassrootspolicy.org.
About the Cover Design

The graphic on the front cover, “Racialization distorts all parts of the system,” illustrates
two of the ideas that we are concerned with. Jobs, housing, education, and criminal
justice are parts of an interconnected system. We often work on “housing” issues or
“education” issues, but as we know, they are in reality all deeply interconnected. Each
part of the system has been distorted and shaped by hundreds of years of racialization,
and this continues to be true today.
The twisted grid lying under the system elements represents the distorting effects of
racialization. It is taken from a work by MC Escher.
Grassroots Policy Project Race, Power and Policy Page 2

Table of Contents
Introduction ...................................................................................................Page 4
Section 1. Racialization Throughout U.S. History .........................................Page 6

Highlights
History of Resistance
Section 2. Race and the Political Economy ................................................Page 11

Race and Markets
Race and the Role of Government
Controlling Community Assets
Section 3. Forms of Racism .......................................................................Page 15

Four Forms of Racism
Structural racism and a systemic analysis
Section 4. Framing and Communications ...................................................Page 18

Getting Framed
Worldview and Race
Elements of a racial justice worldview
Section 5. Developing Racial Justice Policies ............................................Page 24

Guide to Racial Justice Policy Development
Worksheet for Policy Development
Targeted Universalism
Appendix .....................................................................................................Page 32
Sample stories from the history of racialization
Racialization of Citizenship Examples
Glossary of Terms
History of Racialization Timeline ................................................................Page 38

Introduction
Consider these two competing statements about racism in America:
“We are living in a post-racial society.”
— and —
“Racism still occupies the throne of our nation.”

Dr. Martin Luther King, Jr.
In this workshop, we will explore how and why the second statement is a more accurate
depiction of the role that race plays in our society today. We will do this by emphasizing
the role of race in shaping all of our economic and social institutions throughout US
history as well as the cumulative effects of racialization, which include race-based
inequities and disparities. In addition, we look for the linkages between systems of racial
oppression and persistent economic oppression. We draw lessons from the rich history
of struggles for racial and economic justice. Finally, we explore ways in which social
change organizers can bring racial justice into all areas of our work, and how, in doing
so, we can achieve more fundamental and systemic levels of change in society.
The key points1 we will emphasize in this workbook are:

1. Racism is dynamic and ever-changing. The critical aspect of racism that we
must address today is the accumulation and incorporation of long-standing
racialized practices into all of our social and economic structures
2. Structural racialization is a system of social structures that produces and
reproduces cumulative, durable, race-based inequalities.
3. Racialized outcomes do not require racist actors. Focusing on individual
instances of racism can have the effect of diverting our attention from the
structural changes that are required in order to achieve racial justice.
4. Organizers need to explicitly and implicitly challenge all manifestations of
racism and racialization in our work and in our organizations.
Note for facilitators: This workbook was designed for a long weekend session, with the
assumption that there will be follow-up with the participants to help them make use of
the framing/communication tools and to work on racial justice policy development. Each
section can be shortened and revised for shorter workshops. The activities will work for
a group as small as 15 or as large as 50.
1
Core concepts for this session include terms like racialization, structural racism and racial justice.
Definitions for these and other terms are included in the Appendix.

Suggested Introductory Activity: 30 minutes
Divide into small groups of no more than 5 people.
Instructions for groups: Have each person introduce themselves to their other group
members. Each person takes three minutes to name some specific examples of racism
that they know of or have encountered. Make sure each person participates.
Debrief: Ask 2 or 3 people to share something they heard in their group. Note the
differences and similarities in these stories. We will come back to these examples later
in the workshop.
Racialization. The phrase ‘post-racial’ got tossed around a lot after Barack Obama was
elected President of the United States. It was as if having a Black President meant all
the injustices of the past would somehow melt away, or that they were no longer
relevant in American politics. But, we’ve had Black elected officials holding key offices
for decades: mayors, police chiefs, council presidents, and a few governors. This has
hardly made a change in the economic conditions we find in low- and moderate–
income communities of color. Race is deeply embedded in our society, and at the same
time social understandings and the implications of race change over time, precisely
because race in our society is a social construct that serves political ends. The mayors
and the president operate within an economic and power system that constrains what
they can do. So we need to understand both the system that we live in and structural
racialization, which is part of the system.
Racial differentiation has been created, and is constantly being re-created, to serve a
social and or economic purpose. It is maintained through social, legal and political
controls (from slavery to Jim Crow laws to ghettoization to uses of ‘law and order’ and
the criminal justice system, restrictive immigration policies, etc.) It is reinforced by belief
systems, such as the notion of white superiority, and/or associating “American” with
whiteness, and asserting U.S. dominance over the Western Hemisphere.
Racialization is the process by which racial understandings are formed, re-formed and
assigned to groups of people and to social institutions and practices, and to the
consequences of such understandings. For example, in the 17th century, Africans from
diverse nations were categorized under the label ‘Negro,’ which was a racialized
category; in the space of one century, different forms of labor were racialized so that
‘worker’ was white and ‘slave’ was Negro; and, over time, different groups of immigrants
have been assigned to the broad categories of white (European immigrants) or ‘of color’
(Latin American, African, Asian-Pacific Islander and more recently, Middle Eastern
immigrants). This has huge consequences for today’s struggles over immigration policy.
The effects of racialization accumulate over time. Some of the effects are altered, at
times sharply, as in the case of the passage of civil rights legislation, but they are not
erased, even with the election of the first Black President.

Section 1: Racialization Throughout US History
We are using a timeline that goes back to early colonial days to illustrate the ongoing
processes of racialization. Examples from history help us make the process more visible
and concrete. As we move through history, from the colonial era through today, we can
highlight how institutional policies, interactions among institutions, and differences in
resources or investment over time, produce and reproduce racially unequal outcomes.
Highlights from the History of Racialization

This section makes use of a comprehensive timeline located at the end of this
workbook. The timeline divides U.S. history into five eras: 1) Colonial to Mexican-
American War; 2) Civil War to Jim Crow; 3) New Deal to Civil Rights; 4) Civil Rights Era;
5) Post-Civil Rights Era. In each era, we highlight social and economic practices that
became mechanisms of domination and control (for example, slavery in the first era
gives way to Jim Crow by the end of the second era). We also highlight inspiring
examples of organized resistance to domination. Taken together, these histories
provide a picture of the cumulative effects of racialization, and how we have inherited
these effects in the form of structural racialization. It helps participants understand why
significant racial disparities continue more than 45 years after Jim Crow.
Note for facilitators: You can build a number of activities around the enclosed timeline.
We suggest a few here. We recommend projecting and/or posting blown up copies of
the eras so that people can take a gallery walk, have conversations about events and
add things to the timeline. We also have images that illustrate different historical
moments that can be posted and/or handed out. If you would like an electronic copy of
the timeline, please contact us at NPA or GPP.
Here are a few of the key moments in US history where race played a central role in
shaping economic and social practices. Taken together, these give us a picture of the
cumulative effects of racialization.
! 1676. Bacon’s rebellion. Poor whites and Blacks joined together to gain more
economic control. Colonial authorities responded to the rebellion by driving a
wedge between Black and White servants. This was a step in the creation of
“Black” slaves and “white” workers, and the association of working class with
“white.”
! 1789. the Constitution. The political economy of slavery was expressed in
many aspects of the Constitution, not just the 3/5ths provision. Citizenship was
racialized –– one had to be legally defined as white in order to be a citizen. In
practice, at the time, one also had to own property to vote.
! 1846-48. Annexation of Texas, the Southwest territories and California.
Mexicans who remained in the annexed territories were granted US citizenship,
but were not treated the same as the white settlers from the East and the South
who flooded into the territories. Mexicans and other Latin Americans, Native
Americans and Chinese immigrants posed a challenge to the Black/white color
line to which the white settlers were accustomed. Over several decades,

Mexican-Americans and other Latin Americans were lumped together as ‘brown’
or ‘colored’ people. This set the stage for today’s immigration policies.
! 1935-1955. New Deal through the GI Bill: Social Security, Labor Law, FHA and
the GI Bill. Along with their progressive dimensions, these reforms were shaped
and constrained by racialization. The Dixiecrats –– white Southern Democrats
who promoted states’ rights and Jim Crow segregation –– constituted a powerful
voting bloc in Congress. Sadly, other Democrats were willing to bargain away the
rights of Black women and men in order to win the Dixiecrats’ support for these
major reforms. As a result, people of color often were excluded from reforms that
helped expand the middle class. These government programs constituted what
many have called ‘Affirmative Action for white people.’
! 1960s to the present. Law and order, the war on crime, three strikes and you’re
out, tough sentencing for crack cocaine: each of these stemmed from the
backlash against civil rights, the War on Poverty, and organized action in
communities of color. Near the end of the civil rights era, the Right generated a
“moral panic” around a racialized picture of crime. By the early 1980s, the “War
on Drugs” targeted Black and Brown men and youth, even though drug use and
trade among people of color was lower than it was among whites. The results
have included grossly disproportionate incarceration rates, families and
communities torn apart and the largest prison population of any other advanced
industrialized nation. Recent anti-immigrant laws are setting up immigrants of
color for similar treatment.
Activity: Race and Mechanisms of Control 2 hours

Divide into at least small five groups. Assign each group a ‘story’ (sample stories are
included in the Appendix; you can develop others, as well) or an image from one of the
five historical eras. Have the groups answer the following questions:
1. What is the role of race in this story/image?
2. How is race related to the injustices we see in this story/image?
3. Who benefits from the arrangements depicted in this story/image?
Debrief. Bring the groups back together. Have each group share their story/image. Link
each story to the shifts in mechanisms of racial control from one era to the next. Era 1:
Slavery; Era 2: Jim Crow; Era 3: Ghettoization; Era 4: Criminalization; Era 5: the myth of
the post-racial society, while disparities in health, housing, employment, etc. deepen.
Parallel Experiences in Communities of Color. While the experiences of African

Americans, Native Americans and immigrants of color have differed significantly, there
are a number of parallels in experiences that stem from the racialization of citizenship,
immigrant status, labor, and criminalization. The disparities and exploitative conditions
we see today can be traced through these histories of racialization. One clear
manifestation is today’s criminalization of people of color, both native-born and
immigrant, as well as the criminalization of those who resist oppressive conditions.
Citizenship. Starting with the Constitution and then the first naturalization act in 1790,
“white” became the reference point for citizenship; a person’s relationship to ‘whiteness’
determined her or his levels of privileges. It reinforced the use of race as a justification

for enslaving groups of people (African), marginalizing and enclosing groups (Native
Nations), and dispossessing and deporting others (Mexican Americans, Asian-Pacific
Islanders). It reinforces the uses of race to depress wages, segment the labor force and
undermine worker solidarity.
Immigration and the color line. In the 18th Century, the color line in the U.S. was
Black (enslaved) and white (free, eligible for citizenship). With successive waves of
immigration, the color line was shuffled and re-shuffled, so that some immigrants
(European) ended up on the white side of the line while others (Latinos, Asian Pacific
Islanders, Africans and other non-Europeans) were moved to the expanded ‘colored’
side. This was not automatic. At some point, European immigrants were faced with a
choice: either to join forces with others who were similarly situated, economically and
socially, and struggle together for justice and equality, or to strike a bargain with the
white ruling class and accept the existing social and economic order. Meanwhile, many
Mexican Americans who had found themselves on the wrong side of the border during
the annexation of Mexican territories started out as ‘white’ and eligible for citizenship,
then, over time, became ‘brown,’ and subject to deportation. Asian and Pacific Islander
immigrant groups never had the option of becoming white, nor did Native Americans.
Race and the workplace. Despite decades of organizing, today, workers’ rights are
under siege. A weak labor movement is the structural residue of the racialization
of labor relations. It runs throughout history from slavery through Jim Crow restrictions
and the use of chain gangs, to the exploitation migrant workers (Latino, Asian, etc.), and
the exclusion of Black workers from many unions, and the scapegoating of workers of
color as an excuse for suppressing wages and benefits.
The following activity highlights the racialization of citizenship throughout history and
what it suggests for today’s many practices that disenfranchise communities of color.
Activity: Racialization of Citizenship 30 minutes

Note for Facilitators: For this activity, you can use the summaries of four points in
history that is included in the Appendix.
Set up the activity with this: Here are four examples of policies, decisions and practices
that all have to with citizenship in the United States: 1) The Naturalization Act of 1790,
2) the Dred Scott decision, 3) the Repatriation of Mexican Americans and 4) the
Japanese Internment during World War II. As you listen to each example, think about
the message it gives us about what it means to be a citizen.
Divide into small groups. Hand out the summaries (along with an image, if available).
Have one person read each aloud.
Discussion:
1) Each participant gives a one-word reaction to these examples.
2) Which of these examples have you heard before?
3) What do these examples tell us about the right to be a citizen?

Organized Resistance to Racism. Racial formations and processes of racialization
keep changing, in large part because of struggle and resistance: African Americans,
immigrants, Native Nations and others have struggled against racial oppression since
the early colonial days. With each success (or failure), old control mechanisms were
updated and new ones were created. We can trace these transitions on the timeline,
too: slavery, Jim Crow, ghettoization in our cities, the racialization of law and order, and
so on, interacting with and reacting to social movements.
Note to Facilitators: To explore the history of struggle and resistance, you could
highlight a few of these key moments and ask participants to suggest others:
• 1676. Bacon’s Rebellion. Poor white workers joined together with Black and
white indentured servants and slaves in protest against wealthy planters and
their colonial lawmakers. The Colony moved quickly to drive a racial wedge
between white and Black servants, making legal and social distinctions between
‘servants’ (white) and ‘slaves’ (Black).
• 1817. Seminole War of 1817. As the U.S. made its move to annex Florida,
Seminoles resisted with force. The Seminoles also offered sanctuary to fugitive
slaves.
• 1830-1865. Underground Railroad. An extensive network of secret routes and

safe houses used by slaves in 19th century to escape to free states and Canada.
• 1831-1864. National Negro Convention Movement. After decades of

organizing in free states for abolition, African American leaders created the
Negro Convention Movement as a vehicle for Black activism and advocacy. The
Convention met for several years, taking on a wide range of issues affecting
Black communities in states and nationally.
• 1846-1848. U.S. - Mexican War. While called the Mexican War in the U.S.,
Mexicans called it the Invasión estadounidense de México (U.S. invasion of
Mexico). It can be seen as Mexican resistance to U.S. territorial expansion in the
Southwest and Pacific regions.
• 1866-1890s. African American Mutual Aid Societies, Black-run farm and

business cooperatives, Black churches and church-sponsored programs, schools
and colleges flourished during Reconstruction, and provided much of the
infrastructure for Black civic engagement and civil rights organizing.
• 1880-1896. The Populist Movement. This mass movement among small

farmers and works in the Midwest and South for greater control over the
economy provided a rare moment where we saw instances of cross-race
solidarity, as well as corporate and conservative successes in exploiting racial
tensions to undermine that solidarity.

• 1910-1965. The Great Migration. This refers to a trend that started just before
World War I and lasted into the Civil Rights Era. In response to Jim Crow
oppression and the loss of agricultural jobs, waves of African Americans left the
South for industrial centers in the Northeast, Midwest and West Coast.
• 1935-1955. The Congress of Industrial Organizations (CIO) was a more

radical branch of the labor movement and very active during the Great
Depression. Early on, the CIO was open to African American workers and Black
trade union formations, much more explicitly so than the American Federation of
Labor. Many CIO affiliates were active in the early civil rights struggles. But this
does not mean that all affiliate unions were welcoming and/or interested in cross-
racial solidarity.
• 1941. Proposed march on Washington. A Philip Randolph, Bayard Rustin and

A.J. Muste proposed a march on Washington to protest racial discrimination in
war industries and to propose the desegregation of the American Armed
forces. The march was cancelled after President Roosevelt issued Executive
Order 8802, or the Fair Employment Act.
• 1963. March on Washington. This was a key moment in the civil rights
movement of the 1960s. The Civil Rights Movement gave momentum and
inspiration to many other liberation movements: women, Chicano, American
Indian Movement, farmworkers, anti-war, environmental, and LGBT.
• 1982-1988. South Africa, Central America solidarity, peace and justice

movements.
• 2006-today. Immigrant rights organizing. Immigration reform, including a

pathway to citizenship for the 11 million undocumented immigrants living and
working in the U.S., and the Dream Act.
Activity: Putting ourselves onto the timeline. 30 minutes

Make sure everyone has a few post-it notes (or something they can write on and tape to
the timeline). Ask people to reflect upon events in their own lives that taught them the
value of standing up, joining together with others to right an injustice and fight for a
better future.
Note: For participants who have spent part of their lives in another country, encourage
them to include formative events from their country, as well. Later, we can look at how
these events relate to, or enlarge our understanding of, US history.
Write your event(s) down, along with the key date(s), and add your name if you want to.
Then go post it on the timeline. Once people have posted their notes, ask them to talk
with a person standing near them to share and compare stories.

Section 2: Race and the Political Economy
How the economy is racialized. Proponents of the ‘post-racial society’ argument
suggest that the economy is ‘race-neutral’ terrain. For conservatives, especially, the
economy is about markets, and markets are said to work best when they are left alone,
which is to say, when government stays out of the way, or shields markets from outside
pressures or social demands. Following this logic about the economy, we should not
have laws protecting workers, demanding investments in our communities, or outlawing
discrimination.
In reality, the economy is about more than markets, because markets exist within, and
reflect, social forces and power relations in society –– what we call a political economy.
To understand the political economy, we have to look at the relationships between
markets, social institutions, history and culture, and the ever-shifting role of government.
Like all other aspects of society, racialization impacts economic arrangements. Its
cumulative and structural effects, or structural racism, are manifest in ways that
perpetuate race-based economic inequities. Racialization and the political economy
continually interact, from who controls sources of wealth in society, such as land, labor
and capital, to where people live, go to school, get access to transportation and
healthcare, and so much more. From the timeline, we can see who has controlled
resources and who has been marginalized and/or excluded. This history shapes the
political economy much more so than notions of free markets and the invisible hand.
Race and the role of government. Throughout US history, we have been engaged in a
contest over the role of government in relation to the economy. And while there have
always been conservatives who have argued that government should not hold
economic institutions –– including corporations –– to any public purposes, it is only
recently that the extreme conservative view has prevailed. You could say that the rules
of the game changed in the early 1970s. Racialization was central to this game-
changer. Here’s how:
1. Going back to the colonial period, the struggle for ‘states’ rights,’ which was
intended to limit federal government powers, was shaped in large part to
preserve slavery and the racial order of the time. During Reconstruction, states’
rights were invoked to stop the federal government from protecting the economic
and political rights of former slaves (it was called ‘preserving our traditions’ by
white elites). When Reconstruction came to an end, states’ rights meant former
slave-holding states could implement a new racial order in the form of Jim Crow.
2. Big corporations don’t want government to regulate them or to restrict them or to
support workers’ rights to organize and form unions. They don’t want government
to compete with them in providing anything that they can make money from (such
as housing, healthcare, retirement funds and, increasingly, education, prisons,
even the Military).
3. Conservative politicians have supported corporations for more than one hundred
years. In the 1960s they took advantage of a familiar old tool — racism — using it
to stigmatize government and anything “public.”

4. Think about how race and the role of government were linked in these and other
policy arenas:
a) Law and order
b) Welfare
c) Taxes: “my taxes are used to support government programs that benefit
them.”
5. Therefore, we can’t deal with the attacks on government, or question of taxes, or
public employees, without talking about racialization.
Activity: Role-Play 1 hour

You are the new Black mayor of a big city. You want to improve the lives of poor
residents and people of color in your city. To do that, the city needs to shift spending
priorities and raise additional revenues. How do you raise more revenues? If you raise
taxes on the rich and the corporations, they say they will leave town. What do you do?
Debrief: The mayor inherits a racialized city and a capitalist power system that is
focused on making profits and is able to move its investments without any social control.
There is no good solution to the mayor’s dilemma without changing the rules of the
game and gaining some democratic control over capital.
Alternative Role-Play Activity: 1 hour

You are a Latina woman who was recently elected to your state’s legislature. You
represent an urban district that is majority immigrant and working class. You want to
address issues affecting your constituents such as wage theft. During the election, a lot
of conservatives from suburban and rural districts got elected. They ran on a “cut-taxes-
slash urban programs-scapegoat immigrants” platform. Their agenda is to slash funding
for urban programs and divert revenue to their districts. You have a few liberal and
progressive allies who are trying to preserve programs for urban communities. But your
allies want you to hold off on proposing legislation to stop wage theft. They say it will
trigger anti-immigrant sentiment and divert attention from the critical revenue battle in
the state. But your constituents need this bill now. What do you do?
Debrief: In this scenario, the new state representative faces many obstacles. How is
this scenario related to the current economic crisis and the conservatives’ insistence
that we have a revenue crisis? How is it related to the role of race in shaping our
economic policies, from taxes to labor laws?

Racialization and community assets. We have noted that the racial order and political
economy are deeply connected in our social system. One lens to examine this with is
wealth, or access to capital. The power to invest capital is largely held by white
economic elites. At the individual level, whites have on average 10-12 times as much
personal wealth as African Americans.
The following are times when communities of color gained opportunities to control
economic resources:
! Reconstruction, 1865-1877. As part of emancipation, freed slaves were

promised 40 acres and a mule, in addition to freedom. During this time, African
Americans built farms, small business and cooperatives, mutual aid societies and
political associations. Massive resistance from southern whites brought a
premature end to Reconstruction, which was replaced by Jim Crow. The post-
Reconstruction racial order ensured that whites would continue to dominate land
and capital. Today’s struggles of Black farmers are a continuation of this earlier
struggle. And it still meets with resistance (witness Rep. Steve King’s recent rant
on the House floor against ‘reparations’ to farmers who have proven cases of
discrimination).
! Community Action Programs (Office of Economic Opportunity) 1965. The

Office of Economic Opportunity made millions of dollars available to low income
communities in its first year. People who had little or no capital or business
experience were able to create new businesses and community institutions,
including job-training programs. The mayors and governors demanded more
control over these federal programs after the first year, because as people in the
communities got a taste of power and some economic independence, they
started working toward political power.
! Community Reinvestment Act, 1977. By having just a little power over banks,
through government regulation, individuals in African American and Latino
communities received billions of dollars in mortgages and small business loans
they would not have received otherwise.
Activity: Community-Based Economics 45 minutes

Imagine that our communities collectively controlled serious amounts of capital. What
could we do with it? How would we make sure that our collective resources are being
used to target and address long-standing racial disparities in our society, around
housing, access to loans, quality education, neighborhood development, etc.? Now,
think of a big headline that we would like to see in the news 10 years from now, one that
reflects the kinds of changes we are fighting for. What will that headline say?

Alternative Activity: Public Purpose 30 minutes
The Community Reinvestment Act, passed in 1977, requires that banks that have
deposits from a given community have a modest obligation to make loans to
homeowners and small businesses in that community. Assume that in 2010 pressure
from the people created a new law, the Community Control of Investment Act, which
required any corporation of a minimum size to operate with a public purpose, that is, to
benefit the public, not just operate for profit. What public purposes should corporations
operating in your community be subject to?
Follow-up question: How do we bring in more explicit goals for addressing racial
disparities? Why is this important?
Image from Jacob Lawrence’s series of paintings on the Great Migration

Section 3: Racialization and Forms of Racism
Racialization shapes an institution so that as part of its normal functioning, and without
anyone having a consciously racist intention, it produces disparities in outcome by race.
A prime example of this is the way in which our criminal justice system has evolved. In
general, officials avoid saying or doing things that are overtly racist. As long as the
system appears to be operating ‘normally,’ many people do not perceive racism in the
system, and many will resist any arguments that point out racial bias in criminal justice
practices. And yet, racial disparities abound, in policing, in sentencing, in attitudes about
the criminality of youth of color, and in profiling.
Different forms of racism

• Interpersonal: This refers to prejudices and discriminatory behaviors where one group
makes assumptions about the abilities, motives, and intents of other groups based on
race. This set of prejudices leads to cruel intentional or unintentional actions towards
other groups.
• Internalized: In a society in which all aspects of identity and experience are racialized,
and one group is politically, socially and economically dominant, members of
stigmatized groups, who are bombarded with negative messages about their own
abilities and intrinsic worth, may internalize those negative messages. It holds people
back from achieving their fullest potential. It also obscures the structural and systemic
nature of racial oppression, and reinforces those systems.
• Institutional: Where assumptions about race are structured into the social and
economic institutions in our society. Institutional racism occurs when organizations,
businesses, or institutions like schools and police departments discriminate, either
deliberately or indirectly, against certain groups of people to limit their rights. This type
of racism reflects the cultural assumptions of the dominant group.
• Structural: This refers to the accumulation over centuries of the effects of a racialized
society. Think again about the creation of the white middle class and what it means
today to have been left out of that process of wealth-creation, home ownership, college
education, etc.
The critical aspect of racism that we must address today is the accumulation and
incorporation of long-standing racialized practices into all of our social and economic
structures, or structural racism. Think again about that ‘post-racial society’ idea. If race
no longer matters, how do we explain persistent disparities among groups, and
disproportionate levels of poverty, incarceration, unemployment, etc. in communities of
color. We can’t. Not without a structural racism analysis.
Facilitators’ Note: The following two activities help illustrate the effects of structural
racism. The activity “Step Up, Step Back” works best if you have a group of 20 or more
people that is racially, ethnically, culturally and economically diverse: African American,
immigrant, white, working class, middle class, etc.

Activity: Step Up, Step Back 30 minutes
• Ask participants to stand in a line next to each other in the middle of the room
• Read the following statements to the group, but give people a second to think
before they move
• Ask participants to observe how other people are moving as the statements
are read
• Tell participants that if their parents or grandparents had different experiences,
then they should do the exercise with one parent or grandparent in mind
• After you have read the last statement, have people stay where they are
standing, and look to see where others are standing, and where they are in
relation to other people!
Read the following statements:

• If your parents, grandparents or ancestors were not allowed to attend a
college or university because of their race, take one step back
• If you expect to inherit some type of asset (property, cash, stocks, bonds, etc.)
from a relative, take one step forward
• If your grandparents or ancestors were ever enslaved, take one step back
• If your grandparents’ first language is English, take one step forward
• If you have a parent or grandparent that earned a graduate degree, take one
step forward
• If members of your race or ethnicity were legally prevented from voting, take
one step back
• If most of your teachers were from the same racial or ethnic background as
you, take one step forward
• If you routinely see people from your racial or ethnic group heading up
companies and organizations, take one step forward
• If you come from a racial group that has ever been considered by scientists as
“inferior,” take one step back
• If your parents, grandparents, or ancestors were forced to come to the U.S.,
take one step back
• If your parents or grandparents have inherited wealth, take one step forward
• If you had a parent, grandparent, or family member that was ever beaten or
lynched because of their race, take one step back
• If you have a relative that earns more than $250,000 per year, take one step
forward!
Debrief: What patterns or themes did you notice about where people were standing
in the end? Why did people end up standing in the positions they were in?

Activity: Unequal Opportunity Race: 15-20 Minutes
Note to Facilitators: If you have less time, or a less diverse group, you can use this short
video from the African American Policy Forum about the structural disadvantages that
people of color inherit: http://www.youtube.com/watch?v=eBb5TgOXgNY
Here are some of additional discussions and activities that help illustrate the interactions
of different forms of racism.
Activity: Interpersonal and Structural Racism 20 minutes

In groups of two, discuss examples of interpersonal racism you have encountered or
heard of recently (or refer to the examples you shared in the opening activity). Then
discuss how racialization may have set the stage or contribution to the incident. For
example, cities are racialized spatially. Police officers, whether Black or white or Latino,
are likely to focus on certain areas of a city, and to profile young people who fit certain
stereotypes.
Activity: Structural Racism and Education 45 minutes

Where does racialization show up in our kids’ lives? Where does it show up in their
schools, their neighborhoods, their experiences, and the stories they hear about the
police, about education and job opportunities, about what is possible for their lives?
Debrief: the implication for education is that, yes, we have to fight for better education
for our kids. But we also have to struggle around all the ways in which racialization
shapes their lives — education, housing, health care, and jobs are all interconnected, all
part of a larger system, each aspect of which is racialized.

Section 4: Framing, Narrative and Communications
We turn now to the ways in which beliefs shape and reinforce racialized ideas and
power.
Getting Framed
“What is power? It is the ability to tell people what the problem is, who is
responsible and what should be done about it. That’s what power is.”
– Kevin Phillips
This definition of power recognizes the power of ideas, especially of using ideas to
frame an issue for people.
Take a look at the following cartoon. Let’s deconstruct the story that this cartoon tells us
about immigration and citizenship.
Activity:
In small groups, discuss: What is the problem being presented in this cartoon?
Are any solutions suggested by this cartoon?
What is the role of race in this story?
Where do we see similar ideas in U.S. history?

Here’s another example:
Activity:
In small groups, discuss the attached picture of a young man wearing low-hanging
pants.
1. What assumptions might be made about this young
man? Why?
2. In your experience, how valid are those
assumptions?
Debrief: draw out the assumptions and beliefs that are

triggered by this image.
Each of these examples illustrates the power of ideas and images (or frames) to
reinforce the marginalization and criminalization of groups of people based on race.
You just did a ‘frame analysis. Framing refers to the ways that we use elements of
worldview to give meaning to an issue or social problem. A frame brings ideas, themes,
beliefs and assumptions together to tell a story. It may take the form of a literal story, or
an image, or phrase or headline. Here’s an example of the power of a phrase to frame
an issue: in debates about immigration, the term ‘illegal alien,’ or simply ‘illegal’ carries
predefined social meanings and lots of negative associations, many of which are
racialized. The term ‘undocumented worker’ carries a very different set of meanings and
associations. Which one is most clearly anti-immigrant?
Frames bring together certain themes to tell a story and to link that story to a larger set
of beliefs and assumptions, along with a few facts, which hardly ever ‘speak for
themselves.’ There are many ways to frame a set of facts. Consider how prevailing
ideas explain the conditions of people of color in society. In particular, how do they
explain why disproportionate numbers of people of color are concentrated at the bottom
of the economic ladder? How are problems with public schools being framed today?
How have conservatives framed the fact that borrowers of color were more likely to get
subprime loans?
Frames exist within a larger set of ideas, which we call ‘worldview.’

Worldview
“The fish is the last creature to discover water.”
There is a saying: If you teach a man to go always through the back door, if there isn’t a
back door there then he will create it, rather than go through the front door. Worldview
gets into all of us, we swim in an ocean of it. For example, the mayor of New York
appoints a rich white woman to lead the NY Public Schools, because rich white people
are right for the job, according to the dominant worldview, despite the fact that, in this
case, she has no classroom experience whatsoever.
We all have conceptions and images of our place in our family, our workplace and
community, and in political and civic life. We have beliefs about responsibilities, rights
and wrongs, and the role of institutions, including government, in our society. These
beliefs are linked to assumptions about race, class and gender. And while we each
have our own collection of such values and beliefs, which are reinforced by our own
experiences, we unconsciously absorb ideas and meanings from our social world, which
surround us like water. These socially generated beliefs are what we call worldview.
The dominant worldview

Generally at any given time there is a relatively coherent worldview that is dominant.
Most people would probably agree about its overall descriptions of how society works,
and the values that uphold it. Some communities may have alternative (if overlapping)
worldviews that could challenge the dominant worldview, but they may not be visible (or
credible) to most of the population. We can see something about how worldview is
conveyed by looking at the common sense sayings that we hear almost every day.
Activity: Common sense sayings and assumptions. 25 minutes

At your table, talk about common sense sayings that you have heard growing up, and
that you may hear and use today.
Note to facilitators: Be sure to tailor this activity for your group. If it is mostly an
immigrant group, for example, encourage participants to share sayings they grew up
with in their countries of origin, in their communities and families. Compare these with
commonsense sayings that are most frequently mentioned in the US today.
Once your group has listed a number of sayings, take a look at them. What do these
sayings tell us about politics (and whether we can change anything through politics)?
What do they tell us about winners and losers in society, about fairness and equality,
about individualism, about immigrants, about race relations, etc?
Discuss in the whole group. What kind of common sense does the dominant worldview
rest on? Do we have any examples of an alternative worldview?

Often in exercises about commonsense sayings, we will hear some versions of the
following:
• The nail that sticks out gets hit the hardest.
• Tigers don’t change their stripes.
• Only the strong survive.
• You can’t fight city hall.
Here are a few that encourage us to act together for social justice:
• Without struggle, there is no progress.
• Do unto others as you would have them do unto you.
• An injury to one is an injury to all.
• United we stand, divided we fall.
• Injustice anywhere is a threat to justice everywhere.
! Individualism
Key elements of the dominant worldview

• hyper-individualism
• limited government
• the free market Racism
• race
Anti-gov ernment Choice/competition/
the market
You’ll see these themes in most frames about the issues we work on.
The Right and big business have been pushing these for at least 2 centuries, but for a
long time, white working class folks were resistant to pro-business ideologies. After the
civil rights movement, the right deliberately added racism to the first three, creating a
much more culturally and politically potent combination. Some examples: public
housing, welfare reform, and turning the public against public education using race.
Internalized worldview and internalized racism

We all internalize elements of the dominant worldview, Sometimes people refer to the
ways in which people internalize ideas and assumptions about race as internalized
racism. In the context of the dominant worldview, ideas about race and racism exist
within a larger system of power and of oppressive relationships. In this way of thinking,
racism is inseparable from power and domination. This analysis rejects the notion that
there is such as thing as ‘reverse racism.’

Activity: Winners and Losers 20 minutes
The dominant worldview affirms competition: it sorts out high quality from low, the
winners from the losers. In this worldview, winners deserve their rewards, and the losers
don’t. In groups of three, discuss how this element of the dominant worldview has
affected you. Are there implications about race in this?
Elements of a racial justice worldview

There are elements of other worldviews in working class traditions of solidarity, in
African American communities, in immigrant communities, faith traditions, community
organizations and many other groups. Native American communities are often
particularly aware of their own worldviews and how different they are in relation to the
dominant worldview.
If we act within the terrain of the dominant worldview and we accept its assumptions, we
implicitly accept many of the fundamental aspects of the status quo. The more we are
able to develop an alternative worldview that represents our values and our experiences
and wisdom, the more we will be able to win larger struggles.
In developing an alternative worldview, we need to address the key elements of the

dominant worldview. As a starting point, we could work from the following:
! The individual develops as part of a community, and each person is the meeting
point of their social relationships
! The role of government is to develop the capacities of communities and
individuals to govern themselves; and to promote greater equality and justice
among all the participants in society.
! Democracy, understood as the active participation of the people in a society,
needs to stand master over the power of the government and the power of
corporations and the market.
! Racialization and the accumulation of our racialized history are a reality.
Racialization has shaped our government, our economic institutions, our
conceptions and practices of democracy and indeed, our identities. Hence the
need to see and test any conceptions of an alternative worldview and
corresponding institutions through the lens of racialization.
Activity: Racial Justice Worldview 20 minutes

Where do we see elements of the dominant worldview in ourselves and in our work?
Where do we see elements of an alternative worldview?

Activity: Post-Racial Society? 1 hour
Prepare for a Press conference: Is this a post-racial society? This is a current frame that
takes race off the table.
1. People talk at their table for five minutes about why we live in a racialized society,
not a post-racial one.
2. Four people volunteer to be the group that presents their findings: we live in a
racialized society. They have five minutes to prepare their team presentation. The
rest of the participants prepare together to be members of the press, who will be
asking (perhaps hostile) questions to the presenters.
Debrief in the whole group. How well does our panel present the alternative frame,
“structural racism,” to the post-racial frame?
Narrative, Worldview, and Framing

The idea of framing has been used for many years to think about telling stories and
using values to communicate more effectively with different groups. More recently, the
idea of narrative has come into use. Social change movements need to consistently use
a set of core values, beliefs and stories (frames) based on those values and beliefs to
get their core ideas across, not one frame for one issue and completely different frame
for a second issue.
For a social change organization, a narrative is a bundle that includes:
- the set of core ideas and beliefs that are the foundation for what we do and what we
fight for.
- an open-ended collection of stories that embody, illustrate, and expand upon the
organization’s core ideas and beliefs.
One component of the dominant narrative today is the

framing of “illegal:” people coming into this country, looking
for a better life, without the proper documents, are “illegal.”
Since they have broken the law (by definition of the word),
they have to be punished. This frame has been built up
over 40 years, by the “war on drugs” and the campaigns
around law and order – themselves completely racialized
campaigns.
Our work on framing and worldview carries across to narrative. Just as there is a
dominant worldview, there is often a dominant narrative that we need to challenge and
learn to debate. An issue campaign is an intervention on the terrain of current politics; a
narrative is an intervention on the terrain of worldview. Our narrative needs to express
our understanding of and commitment to racial justice.

Section 5: Developing Racial Justice Policies
Racialization and systemic analysis
We’ve seen that racialization runs through all of our social systems (it is systemic),
through all aspects of our society. It is intertwined with economics and with political
power. A vision of a better society, a racially just society, needs therefore to take these
system questions into account.
This graphic depicts racialization as

something like an electric grid running through
our society. It affects and distorts each aspect Education
of society: education, health, housing, and so

on. It affects our children. Housing and Criminal
Justice
Health
employment and criminal justice are

interconnected; they are part of the larger Children
system of society. We can’t expect to fix our
children’s education while leaving everything Housing Employment
else untouched — including racialization itself.

Community
Understanding and resisting
racialization/structural racism has to be an
explicit part of our work. As we work to make
race more explicit, here are two things to keep Racialization distorts all parts of the System
in mind:
• Talking about racialization, analyzing how every issue we work on is shaped by it,
how every organization we work with is shaped by it, is a crucial part of our work.
• We have to learn how to do this analysis as part of our daily work. We have to
practice putting these questions on the table, on using these issues to frame our
issues, and to put them to work in different situations.

From Race-Neutral to Race-explicit.
Let’s recall how racism can be build-into supposedly “neutral” and “universal” reforms.
Consider the consequences of the New Deal legislation: Social Security, labor laws, 30-
year instead of 5-year mortgages, and in addition, the GI Bill. These government
programs were critical to the creation of the white middle class. Two or three
generations of white people were able to buy homes, be assured that their parents
would not be dependent on them for support as they aged, and many were able go to
college. All of this was less true for African Americans. Some programs, like Social
Security, have become more racially inclusive over time, but the consequences of
ignoring the different starting points for people of color, and the need to address
discriminatory practices, means these programs have not leveled the racialized playing
fields.
This cartoon is an example of an attack on a government program. It tells us that the

government can’t be trusted with Social Security, which will be gone when we retire.
The attack on Social Security goes back to the ways in which Dixiecrats used race to try
to limit the scope of the program. They succeeded in excluding categories of workers
who were predominantly people of color. The Dixiecrats didn’t want black folks to have
the security and greater independence that Social Security would give them.
Conservatives want to
privatize Social Security so
that Wall Street can get its
hands on all that money. Who
will benefit and who will be
harmed if that happens?
Today there is a similar

attempt to privatize Medicare,
using the federal deficit as a
reason to change a
government program that has
worked extraordinarily well,
into a voucher program.
!

A Guide to Racial Justice Policy Development
Disparities in education, income, and healthcare between minorities and Whites are all
symptoms of structural racism. These all lead to higher rates of incarceration, lack of
accumulated wealth, and lower life expectancy. Despite the tremendous economic and
social advancement of many people of color in this country, structural racism continues
to regulate a vast majority of people of color to a state of almost permanent second-
class citizenship.
As we have noted throughout this curriculum, structural racism is embedded in our

institutions, customs, and practices, and is perpetuated by policies that affect our
everyday lives. Some of these policies are so commonplace that we take them for
granted or don’t even realize how they’re affecting people of color as well as whites in
their daily lives. In order to begin dismantling the system of structural racism,
organizations committed to racial justice must identify policies that perpetuate the
system and develop new policies that will have positive racial impacts. Those policies
that perpetuate structural racism have the following characteristics:
" Allow for the segregation of resources and risks – redlining, subprime
lending (reverse redlining), certain zoning policies, toxic dumping policies, use of
property taxes to fund public education
" Create inherited group disadvantage or advantage – intergenerational
transfer of wealth through estate inheritance, lack of reparations for historical
injustices (restitution to Native Americans for lands taken by European settlers),
admissions procedures at universities that consider legacy
" Allow for the differential valuation in human life by race – curriculum policies
that teach certain histories and not others, racial profiling and discretionary
sentencing
" Limit the self-determination of certain groups of people – policies that result
in disproportionate incarceration rates for minorities and their subsequent
disenfranchisement, lack of proportional representation elections and decision-
making.
The following are examples of historical policies that have perpetuated structural
racism. These policies all fall into one of the above categories.
" National Labor Relations Act (NLRA). As noted, some reforms that were
assumed to be race neutral have perpetuated race-based inequities. NLRB is
one example, because it excluded farm and domestic workers (who were
predominantly African American in the 1930s) to appease Dixiecrats.
" Mandatory Minimum Drug Sentencing. In the 1980s, this became a key
mechanism in the War on Crime, which targeted communities of color in the
wake of the civil rights movement.
" Zero Tolerance Polices in Schools. This became another mechanism for
criminalizing and stigmatizing youth of color, instead of addressing systemic
problems affecting our schools.

Activity:
Break participants up into groups of 3-4 and have them answer the following questions:
• What are some of the policies in effect in your city or state that you think may
possess these qualities, which perpetuate structural racism?
• What would you do to address these policies?
Bring participants back together and call on a few groups to do report backs
It is important for racial justice organizations to be proactive in developing policies that

begin to dismantle the system of structural racism. Organizations cannot passively
assume that legislators will introduce polices that have positive racial impacts (even
when they want to do something positive). Advancing a racial justice policy agenda
should be a central component of racial justice organizing efforts. As a key aspect of
strategy development that we will explore in a follow-up session, groups can develop
tools for assessing current opportunities for advancing elements of a racial justice
agenda. To get us started, let’s talk about some criteria that organizations can use when
developing policies that will have a positive racial impact.
Note to facilitators. You could start this by suggesting one, then asking the group to
generate others. Draw out the rest, and/or add them in, as needed. Or, if time does not
allow and/or the group is not ready to generate a list, you can hand these out and
discuss and illustrate how you would apply them to a couple of issues.
" Criteria for Policy Development

o The policy should have a universal goal (increasing the number of
homeowners), with strategies to achieve the goal that target people of color
(incentives for first-time homebuyers, especially in underserved communities)
o The policy should explicitly address disparate outcomes based on race, and
provide mechanisms to reduce those disparities (public health programs,
transportation equity, etc.)
o The policy should ultimately increase access to both public and private
resources for people of color who were previously denied equitable access to
those resources
o The policy should allow for people of color to fully express themselves both
culturally and spiritually
o The policy should increase civic participation for people of color, and/or remove
any barriers to participation
o People of color should be involved in the process of developing the policy

Activity:
Break participants up into groups of 4-6 based on the issues they organize around
locally
! Give the small groups 35-45 minutes to develop the framework for a policy around
their issue that will have positive racial impacts, using the above criteria as a
foundation
! Bring everyone back together in one large group, and have each group sit in the
center of the room fishbowl style to answer the following questions:
Describe the policy your group came up with
! How will this policy benefit people of color in your city or state
! How will the policy have broader appeal than just to people of color
! After the group in the fishbowl has gone, allow 5-10 minutes for other participants
to ask them questions
If time permits, select an issue that none of the participants currently work on, and
have them go through the exercise as a practice run. Be sure to reduce the allotted
time for small group discussion, and only have one or two groups present in the
fishbowl.

Worksheet for Policy Development
• Develop a Universal Goal that a wide range of people can aspire to together.
• Since different groups of people need different supports to reach that shared
goal, what will each different group of people need?
• Are there subgroups within each group that have particular circumstances that
need to be addressed in a targeted way?
Universal Goal:
Joyful and meaningful education for all children
Targeted Strategies
Group: Middle class children of all races

o Resources and supports to cultivate, retain and nurture good teachers &
administrators
Group: Low Socio-economic status children

administrators
o Nutritious meals, stable housing, medical care
Group: African American children

administrators
o Curriculum and pedagogical approaches that counter unconscious impact
of pervasive negative stereotypes on decision making and assumptions
Group: Recent immigrants

administrators
o Curriculum and pedagogical approaches that counter unconscious impact
of pervasive negative stereotypes on decision making and assumptions
o English language supports, First language supports,
interpretation/outreach in parent’s first language
Group:
Developed by Connie Heller

Targeted Universalism and Policy Development
Note to Facilitators: This is another way of guiding participants through a process of
bringing racial justice into their policy development.
Targeted universalism (taken from the work of john powell). The basic idea: Raise
everybody up and eliminate inequities.
Definition: A targeted universal policy includes the needs of both the dominant and
minority groups, but pays particular attention to the situation of the minority group. A
targeted universal policy improves the lives of dominant and minority groups, but in
addition it closes the gaps, the disparities, between the groups.
Why targeted universalism:

• Policies that only provide help to a minority (target) group have become harder to
achieve. They have been framed as programs that show favoritism toward a certain
group. And targeted policies are not effective at addressing the fact that the middle
class is increasingly under attack. Pragmatically, our ability to pass or retain targeted
programs is very low. We have a much better chance with targeted universal policies.
• Universal policies that appear to cover the entire population are easier to achieve,
but they are not truly universal. They fail to account for the fact that people are
situated differently in economic and social terms; their outcomes often reinforce
existing inequalities. Social Security has been seen as a great example of universal
programs, yet when it was passed it benefited able-bodied white males working
outside the home for pay. Over the years, changes have been made to Social
Security so that now it is much closer to a targeted universal program.
• Strategically, we need to build a large, permanent multi-racial coalition for social
change in this country. To do so, we need to build cross-racial and class solidarity.
Strictly universal or targeted policies can easily be used to divide such a coalition;
targeted universalism offers better opportunities to strengthen cross-race and class
alliances.
• Transformation: though African Americans and people of color are impacted most
sharply by racism, all people are hurt by it. Transformative programs based on
targeted universalism must be accompanied by transformative ideas and beliefs, to
inspire whites to link their fates to non-whites and to stop divisive race baiting.
Having a policy that exemplifies targeted universalism complements talking about a

racial justice analysis, it doesn’t lessen the need for it. Consider how different the health
care reform debate would be if our starting point were addressing racial inequities in
health outcomes.
Examples of targeted universalism:

• Stimulus funds. Money can be given to road-work across the states (universal), but
may do nothing to bring new transportation, including jobs, to investment-deprived
communities of color. To add “targeting,” include specific incentives and
enforcement to ensure fair access to minority communities; all projects should

require local resident hiring goals and create a link to community-based groups as
the first contact for construction jobs.
• Housing: create policies that are intended to remedy the results of discriminatory
housing practices, such as red-lining. Decades of public and private policies have
left minority communities starved of affordable housing and much-needed
investment.
• Criminal code: end ex-felon disenfranchisement; end sentences for non-violent
crimes.
• Education: K-12 education is “universal,” but to make education deal with the long
history of structural racialization and oppression in minority communities, there have
to be targeted resources allocated to those communities.
The idea of targeted universalism addresses ways to formulate policy that takes
structural racialization into account. In the appendix there is a checklist that we can use
back at home to work through more aspects of our work (from Isaiah – Kirwan Guide).
Here is an abbreviated set of questions.
Activity:
Using a policy area that folks in the room are working on, go through the following
questions:
1. Who benefits? Can we make it more beneficial to our communities?
2. What groups are burdened by this policy? Can the burdens be more equitably
distributed.
3. How are people of color included in the decision-making process?
4. What were the criteria used to make the decision? Could there be other criteria?
5. How can we better address equity, closing the disparities?
6. What is an equitable, participative, and effective public process?

Appendix
Sample stories from the history of racialization.

The following stories can be used for the first activity in Section 1. They each capture a
moment in time, in one of the historical eras, in which race is a critical element.
1. Poor Blacks and whites, servant and free, join together. Background: In 1676, in
the Virginia Colony, small-farmers and farm laborers were frustrated by the power of
large landowners to set prices and control large tracts of land. Both non-land-owning
whites, including both white and black indentured servants and slaves joined what
became known as Bacon’s Rebellion
Backlash: Race-based restrictions were instituted after the rebellion. Black indentured
servants and slaves lost the right to assembly, to carry weapons, to earn and save
money on the side. Meanwhile, conditions improved for white indentured servants.
2. Strike crushed by invoking immigration status of workers.

The Bisbee Deportation of 1917 was the illegal deportation of nearly 1300 striking
workers to the desert of Hermanas, New Mexico. Over 2000 copper mine workers in
Bisbee, Arizona, many of Mexican descent, organized with the Industrial Workers of the
World (IWW), presented a list of demands for safer conditions and a better pay rate to
the Phelps Dodge Corporation and went on strike when the demands were not met. In
solidarity, about 1000 workers from other local mines went on strike at the same time.
The workers were met by the local sheriff and 2200 armed vigilantes who forced them
onto cattle cars. Those who refused to renounce the union were transported for 16
hours then dropped off in a remote desert with no money, transportation, food or water.
The Governor of New Mexico did not want to deal with 1300 homeless workers in his
state, so he called in the US Army to escort them to a nearby city where they could
arrange for travel back home.
Sheriff Harry Wheeler, when questioned by the Arizona Attorney General about his role
in the deportation, stated, “It became a question of 'Are you American, or are you not?”
He told the Attorney General: "I would repeat the operation any time I find my own
people endangered by a mob composed of eighty percent aliens and enemies of my
Government."
3. Cross-race worker solidarity during the Great Depression:

In 1934 a group of African Americans and whites formed the Southern Tenant Farmers'
Union (STFU) in Tyronza, Arkansas. The interracial organization adopted two goals: to
protect Arkansas sharecroppers from eviction by planters and to ensure that the
sharecroppers received their share of the money due from Agricultural Adjustment Act
(AAA) payments. The STFU appealed to the federal government to end AAA policies
that in effect rewarded large planters by allowing them to eliminate their work force. The
organization adopted a written policy of passive resistance. In 1935 the union staged a
successful cotton pickers' strike that raised the price for picking cotton to seventy-five

cents for one hundred pounds. The next year's cotton choppers' strike failed to gain its
demands amidst violence and evictions.
4. Legal definitions of ‘Black’ and ‘White’ Affirmed.

Background: How is it that a Black woman cannot have a white child but a white
woman can have a Black child? It all started with the economic imperative to reproduce
slave labor and regulate the offspring that resulted from white overseers’ sexual abuse
of Black women.
The Story: In 1984, Susie Guillory Phipps unsuccessfully sued the Louisiana Bureau of
Vital Records to change her racial classification from Black to white. The descendant of
an eighteenth-century white planter and a Black slave, Phipps was designated as
"Black" in her birth certificate in accordance with a 1970 state law which declared
anyone with at least one-thirty-second "Negro blood" to be Black.
Phipps lost her case. The highest court of the land upheld a state law that quantified
racial identity, and in so doing affirmed the legality of assigning individuals to specific
racial groupings.

The Racialization of Citizenship
The following examples can be used in the second activity in Section 1. We are looking
at a wide swath of time to illustrate how race in intertwined with notions of citizenship.
Here are four examples of the role of race in who is considered a citizen, and what it
means to be a citizen.
! Naturalization Act of 1790: This was the first immigration law passed in the
U.S., and it stated that in order to become a citizen, an immigrant to the U.S.
must be in the country for at least two years, and be a “free white person” of
“good moral character.” Slaves and free African Americans were thus clearly
excluded from naturalization.
! Dred Scott Supreme Court Decision of 1857: Dred Scott was born a slave in
Virginia. He was purchased by a US Army doctor, who over the years took
assignments in several free states that outlawed slavery while keeping Scott in
bondage. Scott sued for his freedom. The justices of the Supreme Court stated
that the writers of the Constitution viewed Black people as inferior and did not
intend for the Constitution to protect them, so they declared the lawsuit invalid.
Furthermore, they declared that slaves of African descent and their descendants
forever into the future could never become US citizens.
! Mexican Repatriation: Between 1929 and 1939, close to one million people of
Mexican descent were deported or pressured to leave the US. About 60% of
them were US citizens, many of whom had never been to Mexico. The campaign
was a response to the Great Depression. The Secretary of Labor scapegoated
“illegal immigrants” (one of the earliest widespread uses of the term) as
exacerbating the problem and “taking American jobs.” In 2006, then-
Representatives Hilda Solis and Luis Gutierrez called for an apology from the US
Government for the Repatriation. To this day such an apology has not been
given.
! Japanese Internment: After the attack on Pearl Harbor and the U.S. entry into
World War II, anti-Japanese hysteria rises throughout the country. Japanese-
Americans are accused of being disloyal. Starting in 1942, over 100,000 persons
of Japanese descent on the West Coast are forcibly removed and held in
specially-built detainment facilities referred to as "War Relocation Camps."
Although 2/3rds of detainees are US citizens, all are treated as "enemy aliens."
In 1944, the U.S. Supreme Court rules that the internment order is constitutional.
The U.S. government later apologizes and pays reparations to the people who
were interned.
1) Each participant gives a one-word reaction to these examples.
2) Which of these examples have you heard before?
3) What do these examples tell us about the right to be a citizen?

Glossary
The key terms that we will use throughout this session help us understand the complex
and changing nature of racism in our society. We are introducing many related terms
that help get at the different ways in which racism is experienced, institutionalized and
understood, as well as the ways in which race and racism change throughout history.
What is race?
The meaning of ‘race’ is constantly shifting and being contested. Its uses in a society
have more to do with power relations, economic arrangements, social norms and
prevailing ideologies than with physiological differences between and among human
beings (such as skin color). Race as a way of categorizing groups of people most often
is used to explain, justify and/or maintain inequalities and oppressive social practices.
While concepts of race have varied and changed over time –– often in response to
resistance and struggle –– race remains at the center stage of US history.
Understanding racism.
Because racism involves ideology, structures, policies and practices, it is best
understood as having several manifestations: interpersonal, institutional and structural
(we define each of these below). Taken together, we can offer a working definition of
racism: Racism is a system that consists of policies, practices, and norms that structure
opportunity and assign value based on physiological characteristics such as skin color.
Racism unfairly disadvantages some individuals and communities and undermines the
realization of the full human potential of the whole society.
Forms of racism
• Interpersonal Racism: This refers to prejudices and discriminatory behaviors where
one group makes assumptions about the abilities, motives, and intents of other groups
based on race. This set of prejudices leads to cruel intentional or unintentional actions
towards other groups.
• Internalized Racism: In a society where one group is politically, socially and

economically dominant, members of stigmatized groups, who are bombarded with
negative messages about their own abilities and intrinsic worth, may internalize those
negative messages. It holds people back from achieving their fullest potential and
reinforces the negative messages which, in turn, reinforces the oppressive systems.
• Institutional Racism: Where assumptions about race are structured into the social
and economic institutions in our society. Institutional racism occurs when organizations,
businesses, or institutions like schools and police departments discriminate, either
deliberately or indirectly against certain groups of people to limit their rights. This type of
racism reflects the cultural assumptions of the dominant group.
• Structural Racialization: While most of the legally based forms of racial

discrimination have been outlawed, many of the racial disparities originating in various
institutions and practices continue and accumulate as major forces in economic and

political structures and cultural traditions. Structural racialization refers to the ways in
which social structures and institutions, over time, perpetuate and produce cumulative,
durable, race-based inequalities.
B. Evidence of structural racialization. All of the discrepancies between whites and

communities of color that we see today: the wealth gap, the education gap, higher
incarceration rates, higher unemployment rates, and disparities in health outcomes, are
evidence of structural racialization. Segregation in housing and discrimination in lending
have cumulative effects: fewer sources of family wealth, as well as fewer investments
in, and limited services for, communities of color. Likewise, patterns of residential
discrimination and disinvestment affect the quality of schools in communities of color.
The thing to remember about structural racialization is that racialized outcomes no

longer require racist actors. It is built-into the institutions and practices. Getting rid of
a racist person does not change the practices. The critical aspect of racism that we
must address today is the accumulation and incorporation of long-standing racialized
practices into all of our social and economic structures.
3. Racialization. Part of the ways in which race as a category is constructed is through

the process of ‘racialization,’ which can consist in attributing ‘race’ (and its associated
meanings) to something – a status, or a practice, or an institution. Institutions that
appear to be neutral can be racialized, shaped by previous racial practices and
outcomes so that the institution perpetuates racial disparities, or makes them worse.
This is true of the criminal justice system, the education and health systems in our
country, and so on.
A primary example of this is how labor became racialized; over several decades, slave
labor went from a status of limited servitude — a position held by European immigrants
as well as Caribbean, West Indian and African immigrants in the late 16th and early 17th
century America — to perpetual servitude (for life), a position that, by the late 17th
century, was held only by people of African descent (who arrived from the West Indies,
or directly from Africa, or who were born to women of African descent).
Racialization and worldview

The racialization of labor meant that being Black became associated with being
subordinate, unequal, less than fully human. An ideology of race grew up around
slavery.
To be sure, racist ideologies and notions of superiority predated slavery. What is unique
about the way in which racist ideology interacted with the institutionalization of slavery is
the way in which race, especially defining ‘white’ citizenship in opposition to the status
of people of color, became an organizing principle for society. In this we see the
interplay between practice –– chattel slavery –– and ideology –– white supremacy.
Racism is about a lot more than malicious acts that are intentionally perpetrated by one
group of people against another. It is woven into the fabric of society, and reflected in
every institution.

4. Racial Justice
Historic patterns of racism have created deep disparities between whites and people of
color in this country. The struggle for racial justice must address the ongoing practices
that perpetuate these disparities and actively seek to dismantle them. In addition, this
struggle must expand our notions of a good and just society.
Racial justice refers to a wide range of ways in which groups and individuals struggle to
change laws, policies, practices and ideas that reinforce and perpetuate racial
disparities. Proactively, it is first and foremost the struggle for equitable outcomes for
people of color. This includes struggles for a society based on inclusion, justice, equity,
respect for diversity and difference. Sustained, dedicated action is needed in order to
root out structural forms of racialization and to dismantle them through policy initiatives
as well as through cultural awareness, and by creating new practices and relationships
in our communities.
It also means addressing underlying economic conditions that perpetuate exploitation

and gross inequalities in wealth and income. Whether the specific campaign is about
affordable housing, predatory lending, banking reform, immigrant justice, healthcare or
racial profiling or criminal justice reform, applying a racial justice lens will sharpen our
focus while also deepening our analysis and broadening our sense of what we are
aiming for.

History of Racialization Timeline
Racialization runs throughout US history. In the following timelines we have tried to
capture some key moments that can be used to illustrate the history of racialization, and
that can be starting points for discussion. The timeline is not an attempt to be
comprehensive but rather selective – we are interested in any suggestions or thoughts
as to what other events might in included in the timeline (as we welcome suggestions
about the workbook as a whole).
The timeline is divided into five periods, in part for reasons of visual display. The periods
are:
1. Colonial Era through the Mexican-American War
2. The Civil War through Jim Crow
3. New Deal to Civil Rights
4. The Civil Rights Era
5. The Post-Civil Rights Era
Each timeline is divided into three bands. The top band concerns events more directly
about African-American history. The middle band is about the history of Latinos and
other People of Color in this country. And the bottom band is composed of General
Events that we think provide some context. There are many events that could belong in
all three bands, or perhaps should be placed differently.

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Race, Power and Policy:

Dismantling Structural Racism

Racialization distorts all parts of the System

Prepared for National People’s Action by the Grassroots Policy Project

We gratefully acknowledge that the Spanish translation of the workbook is by Arturo

In addition, we have included a worksheet developed by Connie Heller, a summary of

Please send your questions, suggestions and feedback to

About the Cover Design

Grassroots Policy Project Race, Power and Policy Page 2

Section 1. Racialization Throughout U.S. History .........................................Page 6

Section 2. Race and the Political Economy ................................................Page 11

Section 3. Forms of Racism .......................................................................Page 15

Section 4. Framing and Communications ...................................................Page 18

Section 5. Developing Racial Justice Policies ............................................Page 24

History of Racialization Timeline ................................................................Page 38

Grassroots Policy Project Race, Power and Policy Page 3

“We are living in a post-racial society.”

“Racism still occupies the throne of our nation.”

The key points1 we will emphasize in this workbook are:

Grassroots Policy Project Race, Power and Policy Page 4

Grassroots Policy Project Race, Power and Policy Page 5

Highlights from the History of Racialization

Grassroots Policy Project Race, Power and Policy Page 6

Activity: Race and Mechanisms of Control 2 hours

Parallel Experiences in Communities of Color. While the experiences of African

Grassroots Policy Project Race, Power and Policy Page 7

Activity: Racialization of Citizenship 30 minutes

Grassroots Policy Project Race, Power and Policy Page 8

• 1830-1865. Underground Railroad. An extensive network of secret routes and

• 1831-1864. National Negro Convention Movement. After decades of

• 1866-1890s. African American Mutual Aid Societies, Black-run farm and

• 1880-1896. The Populist Movement. This mass movement among small

Grassroots Policy Project Race, Power and Policy Page 9

• 1935-1955. The Congress of Industrial Organizations (CIO) was a more

• 1941. Proposed march on Washington. A Philip Randolph, Bayard Rustin and

• 1982-1988. South Africa, Central America solidarity, peace and justice

• 2006-today. Immigrant rights organizing. Immigration reform, including a

Activity: Putting ourselves onto the timeline. 30 minutes

Grassroots Policy Project Race, Power and Policy Page 10

Grassroots Policy Project Race, Power and Policy Page 11

Activity: Role-Play 1 hour

Alternative Role-Play Activity: 1 hour

Grassroots Policy Project Race, Power and Policy Page 12

! Reconstruction, 1865-1877. As part of emancipation, freed slaves were

! Community Action Programs (Office of Economic Opportunity) 1965. The

Activity: Community-Based Economics 45 minutes

Grassroots Policy Project Race, Power and Policy Page 13

Image from Jacob Lawrence’s series of paintings on the Great Migration

Grassroots Policy Project Race, Power and Policy Page 14

Different forms of racism

Grassroots Policy Project Race, Power and Policy Page 15

Read the following statements:

Grassroots Policy Project Race, Power and Policy Page 16

Activity: Interpersonal and Structural Racism 20 minutes

Activity: Structural Racism and Education 45 minutes

Grassroots Policy Project Race, Power and Policy Page 17

Grassroots Policy Project Race, Power and Policy Page 18

Debrief: draw out the assumptions and beliefs that are