Protesters on the streets of Baltimore after the death in custody of a young black man, Freddie Gray. Photograph: Algerina Perna/AP
President Lyndon Johnson formed an 11-member National Advisory Commission on Civil Disorders in July 1967 to explain the riots that plagued cities each summer since 1964 and to provide recommendations for the future. The Commission’s 1968 report, informally known as the Kerner Report, concluded that the nation was “moving toward two societies, one black, one white—separate and unequal.” Unless conditions were remedied, the Commission warned, the country faced a “system of ’apartheid’” in its major cities. The Kerner report delivered an indictment of “white society” for isolating and neglecting African Americans and urged legislation to promote racial integration and to enrich slums—primarily through the creation of jobs, job training programs, and decent housing. President Johnson, however, rejected the recommendations. In April 1968, one month after the release of the Kerner report, rioting broke out in more than 100 cities following the assassination of civil rights leader Martin Luther King, Jr. In the following excerpts from the Kerner Report summary, the Commission analyzed patterns in the riots and offered explanations for the disturbances. In 1998, 30 years after the issuance of the Report, former Senator and Commission member Fred R. Harris co-authored a study that found the racial divide had grown in the ensuing years with inner-city unemployment at crisis levels. Opposing voices argued that the Commission’s prediction of separate societies had failed to materialize due to a marked increase in the number of African Americans living in suburbs.
SUMMARY OF REPORT
The summer of 1967 again brought racial disorders to American cities, and with them shock, fear and bewilderment to the nation.
The worst came during a two-week period in July, first in Newark and then in Detroit. Each set off a chain reaction in neighboring communities.
On July 28, 1967, the President of the United States established this Commission and directed us to answer three basic questions:
What happened? Why did it happen? What can be done to prevent it from happening again?
To respond to these questions, we have undertaken a broad range of studies and investigations. We have visited the riot cities; we have heard many witnesses; we have sought the counsel of experts across the country.
This is our basic conclusion: Our nation is moving toward two societies, one black, one white—separate and unequal.
Reaction to last summer’s disorders has quickened the movement and deepened the division. Discrimination and segregation have long permeated much of American life; they now threaten the future of every American.
This deepening racial division is not inevitable. The movement apart can be reversed. Choice is still possible. Our principal task is to define that choice and to press for a national resolution.
To pursue our present course will involve the continuing polarization of the American community and, ultimately, the destruction of basic democratic values.
The alternative is not blind repression or capitulation to lawlessness. It is the realization of common opportunities for all within a single society.
This alternative will require a commitment to national action—compassionate, massive and sustained, backed by the resources of the most powerful and the richest nation on this earth. From every American it will require new attitudes, new understanding, and, above all, new will.
The vital needs of the nation must be met; hard choices must be made, and, if necessary, new taxes enacted.
Violence cannot build a better society. Disruption and disorder nourish repression, not justice. They strike at the freedom of every citizen. The community cannot—it will not—tolerate coercion and mob rule.
Violence and destruction must be ended—in the streets of the ghetto1 and in the lives of people.
Segregation and poverty have created in the racial ghetto a destructive environment totally unknown to most white Americans.
What white Americans have never fully understood—but what the Negro can never forget—is that white society is deeply implicated in the ghetto. White institutions created it, white institutions maintain, and white society condones it.
It is time now to turn with all the purpose at our command to the major unfinished business of this nation. It is time to adopt strategies for action that will produce quick and visible progress. It is time to make good the promises of American democracy to all citizens—urban and rural, white and black, Spanish-surname, American Indian, and every minority group.
Our recommendations embrace three basic principles:
To mount programs on a scale equal to the dimension of the problems;
To aim these programs for high impact in the immediate future in order to close the gap between promise and performance;
To undertake new initiatives and experiments that can change the system of failure and frustration that now dominates the ghetto and weakens our society.
These programs will require unprecedented levels of funding and performance, but they neither probe deeper nor demand more than the problems which called them forth. There can be no higher priority for national action and no higher claim on the nation’s conscience. . . .
PART I—WHAT HAPPENED?
Chapter 1—Profiles of Disorder
The report contains profiles of a selection of the disorders that took place during the summer of 1967. These profiles are designed to indicate how the disorders happened, who participated in them, and how local officials, police forces, and the National Guard responded. Illustrative excerpts follow:
. . . On Saturday, July 15, [Director of Police Dominick] Spina received a report of snipers in a housing project. When he arrived he saw approximately 100 National Guardsmen and police officers crouching behind vehicles, hiding in corners and lying on the ground around the edge of the courtyard.
Since everything appeared quiet and it was broad daylight, Spina walked directly down the middle of the street. Nothing happened. As he came to the last building of the complex, he heard a shot. All around him the troopers jumped, believing themselves to be under sniper fire. A moment later a young Guardsman ran from behind a building.
The Director of Police went over and asked him if he had fired the shot. The soldier said yes, he had fired to scare a man away from a window; that his orders were to keep everyone away from windows.
Spina said he told the soldier: “Do you know what you just did? You have now created a state of hysteria. Every Guardsman up and down this street and every state policeman and every city policeman that is present thinks that somebody just fired a shot and that it is probably a sniper.”
A short time later more “gunshots” were heard. Investigating, Spina came upon a Puerto Rican sitting on a wall. In reply to a question as to whether he knew “where the firing is coming from?” the man said:
“That’s no firing. That’s fireworks. If you look up to the fourth floor, you will see the people who are throwing down these cherry bombs.”
By this time four truckloads of National Guardsmen had arrived and troopers and policemen were again crouched everywhere looking for a sniper. The Director of Police remained at the scene for three hours, and the only shot fired was the one by the Guardsmen.
Nevertheless, at six o’clock that evening two columns of National Guardsmen and state troopers were directing mass fire at the Hayes Housing Project in response to what they believed were snipers. . . .
. . . A spirit of carefree nihilism was taking hold. To riot and destroy appeared more and more to become ends in themselves. Late Sunday afternoon it appeared to one observer that the young people were “dancing amidst the flames.”
A Negro plainclothes officer was standing at an intersection when a man threw a Molotov cocktail into a business establishment at the corner. In the heat of the afternoon, fanned by the 20 to 25 m.p.h. winds of both Sunday and Monday, the fire reached the home next door within minutes. As residents uselessly sprayed the flames with garden hoses, the fire jumped from roof to roof of adjacent two- and three-story buildings. Within the hour the entire block was in flames. The ninth house in the burning row belonged to the arsonist who had thrown the Molotov cocktail. . . .
* * *
. . . Employed as a private guard, 55-year-old Julius L. Dorsey, a Negro, was standing in front of a market when accosted by two Negro men and a woman. They demanded he permit them to loot the market. He ignored their demands. They began to berate him. He asked a neighbor to call the police. As the argument grew more heated, Dorsey fired three shots from his pistol into the air.
The police radio reported: “Looters, they have rifles.” A patrol car driven by a police officer and carrying three National Guardsmen arrived. As the looters fled, the law enforcement personnel opened fire. When the firing ceased, one person lay dead.
He was Julius L. Dorsey . . .
* * *
. . . As the riot alternatively waxed and waned, one area of the ghetto remained insulated. On the northeast side the residents of some 150 square blocks inhabited by 21,000 persons had, in 1966, banded together in the Positive Neighborhood Action Committee (PNAC). With professional help from the Institute of Urban Dynamics, they had organized block clubs and made plans for the improvement of the neighborhood. . . .
When the riot broke out, the residents, through the block clubs, were able to organize quickly. Youngsters, agreeing to stay in the neighborhood, participated in detouring traffic. While many persons reportedly sympathized with the idea of a rebellion against the “system,” only two small fires were set—one in an empty building.
* * *
. . . According to Lt. Gen. Throckmorton and Col. Bolling, the city, at this time, was saturated with fear. The National Guardsmen were afraid, the residents were afraid, and the police were afraid. Numerous persons, the majority of them Negroes, were being injured by gunshots of undetermined origin. The general and his staff felt that the major task of the troops was to reduce the fear and restore an air of normalcy.
In order to accomplish this, every effort was made to establish contact and rapport between the troops and the residents. The soldiers—20 percent of whom were Negro—began helping to clean up the streets, collect garbage, and trace persons who had disappeared in the confusion. Residents in the neighborhoods responded with soup and sandwiches for the troops. In areas where the National Guard tried to establish rapport with the citizens, there was a smaller response.
. . . A short time later, elements of the crowd—an older and rougher one than the night before—appeared in front of the police station. The participants wanted to see the mayor.
Mayor [Patricia] Sheehan went out onto the steps of the station. Using a bullhorn, she talked to the people and asked that she be given an opportunity to correct conditions. The crowd was boisterous. Some persons challenged the mayor. But, finally, the opinion, “She’s new! Give her a chance!” prevailed.
A demand was issued by people in the crowd that all persons arrested the previous night be released. Told that this already had been done, the people were suspicious. They asked to be allowed to inspect the jail cells.
It was agreed to permit representatives of the people to look in the cells to satisfy themselves that everyone had been released.
The crowd dispersed. The New Brunswick riot had failed to materialize.
Chapter 2—Patterns of Disorder
The “typical” riot did not take place. The disorders of 1967 were unusual, irregular, complex and unpredictable social processes. Like most human events, they did not unfold in an orderly sequence. However, an analysis of our survey information leads to some conclusions about the riot process.
The civil disorders of 1967 involved Negroes acting against local symbols of white American society, authority and property in Negro neighborhoods—rather than against white persons.
Of 164 disorders reported during the first nine months of 1967, eight (5 percent) were major in terms of violence and damage; 33 (20 percent) were serious but not major; 123 (75 percent) were minor and undoubtedly would not have received national attention as “riots” had the nation not been sensitized by the more serous outbreaks.
In the 75 disorders studied by a Senate subcommittee, 83 deaths were reported. Eighty-two percent of the deaths and more than half the injuries occurred in Newark and Detroit. About 10 percent of the dead and 38 percent of the injured were public employees, primarily law officers and firemen. The overwhelming majority of the persons killed or injured in all the disorders were Negro civilians.
Initial damage estimates were greatly exaggerated. In Detroit, newspaper damage estimates at first ranged from $200 million to $500 million; the highest recent estimate is $45 million. In Newark, early estimates ranged from $15 to $25 million. A month later damage was estimated at $10.2 million, over 80 percent in inventory losses.
In the 24 disorders in 23 cities which we surveyed:
The final incident before the outbreak of disorder, and the initial violence itself, generally took place in the evening or at night at a place in which it was normal for many people to be on the streets.
Violence usually occurred almost immediately following the occurrence of the final precipitating incident, and then escalated rapidly. With but few exceptions, violence subsided during the day, and flared rapidly again at night. The night-day cycles continued through the early period of the major disorders.
Disorder generally began with rock and bottle throwing and window breaking. Once store windows were broken, looting usually followed.
Disorder did not erupt as a result of a single “triggering” or “precipitating” incident. Instead, it was generated out of an increasingly disturbed social atmosphere, in which typically a series of tension-heightening incidents over a period of weeks or months became linked in the minds of many in the Negro community with a reservoir of underlying grievances. At some point in the mounting tension, a further incident—in itself often routine or trivial—became the breaking point and the tension spilled over into violence.
“Prior” incidents, which increased tensions and ultimately led to violence, were police actions in almost half the cases; police actions were “final” incidents before the outbreak of violence in 12 of the 24 surveyed disorders.
No particular control tactic was successful in every situation. The varied effectiveness of control techniques emphasizes the need for advance training, planning, adequate intelligence systems, and knowledge of the ghetto community.
Negotiations between Negroes—including your militants as well as older Negro leaders—and white officials concerning “terms of peace” occurred during virtually all the disorders surveyed. In many cases, these negotiations involved discussion of underlying grievances as well as the handling of the disorder by control authorities.
The typical rioter was a teenager or young adult, a lifelong resident of the city in which he rioted, a high school dropout; he was, nevertheless, somewhat better educated than his nonrioting Negro neighbor, and was usually underemployed or employed in a menial job. He was proud of his race, extremely hostile to both whites and middle-class Negroes and, although informed about politics, highly distrustful of the political system.
A Detroit survey revealed that approximately 11 percent of the total residents of two riot areas admitted participation in the rioting, 20 to 25 percent identified themselves as “bystanders,” over 16 percent identified themselves as “counter-rioters” who urged rioters to “cool it,” and the remaining 48 to 53 percent said they were at home or elsewhere and did not participate. In a survey of Negro males between the ages of 15 and 35 residing in the disturbance area in Newark, about 45 percent identified themselves as rioters, and about 55 percent as “noninvolved.”
Most rioters were young Negro males. Nearly 53 percent of arrestees were between 15 and 24 years of age; nearly 81 percent between 15 and 35.
In Detroit and Newark about 74 percent of the rioters were brought up in the North. In contrast, of the noninvolved, 36 percent in Detroit and 52 percent in Newark were brought up in the North.
What the rioters appeared to be seeking was fuller participation in the social order and the material benefits enjoyed by the majority of American citizens. Rather than rejecting the American system, they were anxious to obtain a place for themselves in it.
Numerous Negro counter-rioters walked the streets urging rioters to “cool it.” The typical counter-rioter was better educated and had higher income than either the rioter or the noninvolved.
The proportion of Negroes in local government was substantially smaller than the Negro proportion of population. Only three of the 20 cities studied had more than one Negro legislator; none had ever had a Negro mayor or city manager. In only four cities did Negroes hold other important policy-making positions or serve as heads of municipal departments.
Although almost all cities had some sort of formal grievance mechanism for handling citizen complaints, this typically was regarded by Negroes as ineffective and was generally ignored.
Although specific grievances varied from city to city, at least 12 deeply held grievances can be identified and ranked into three levels of relative intensity:
First Level of Intensity
1. Police practices
2. Unemployment and underemployment
3. Inadequate housing
Second Level of Intensity
4. Inadequate education
5. Poor recreation facilities and programs
6. Ineffectiveness of the political structure and grievance mechanisms.
Third Level of Intensity
7. Disrespectful white attitudes
8. Discriminatory administration of justice
9. Inadequacy of federal programs
10. Inadequacy of municipal services
11. Discriminatory consumer and credit practices
12. Inadequate welfare programs
The results of a three-city survey of various federal programs—manpower, education, housing, welfare and community action—indicate that, despite substantial expenditures, the number of persons assisted constituted only a fraction of those in need.
The background of disorder is often as complex and difficult to analyze as the disorder itself. But we find that certain general conclusions can be drawn:
Social and economic conditions in the riot cities constituted a clear pattern of severe disadvantage for Negroes compared with whites, whether the Negroes lived in the area where the riot took place or outside it. Negroes had completed fewer years of education and fewer had attended high school. Negroes were twice as likely to be unemployed and three times as likely to be in unskilled and service jobs. Negroes averaged 70 percent of the income earned by whites and were more than twice as likely to be living in poverty. Although housing cost Negroes relatively more, they had worse housing—three times as likely to be overcrowded and substandard. When compared to white suburbs, the relative disadvantage is even more pronounced.
A study of the aftermath of disorder leads to disturbing conclusions. We find that, despite the institution of some post-riot programs:
Little basic change in the conditions underlying the outbreak of disorder has taken place. Actions to ameliorate Negro grievances have been limited and sporadic; with but few exceptions, they have not significantly reduced tensions.
In several cities, the principal official response has been to train and equip the police with more sophisticated weapons.
In several cities, increasing polarization is evident, with continuing breakdown of inter-racial communication, and growth of white segregationist or black separatist groups. . . .
PART II—WHY DID IT HAPPEN?
Chapter 4—The Basic Causes
In addressing the question “Why did it happen?” we shift our focus from the local to the national scene, from the particular events of the summer of 1967 to the factors within the society at large that created a mood of violence among many urban Negroes.
These factors are complex and interacting; they vary significantly in their effect from city to city and from year to year; and the consequences of one disorder, generating new grievances and new demands, become the causes of the next. Thus was created the “thicket of tension, conflicting evidence and extreme opinions” cited by the President.
Despite these complexities, certain fundamental matters are clear. Of these, the most fundamental is the racial attitude and behavior of white Americans toward black Americans.
Race prejudice has shaped our history decisively; it now threatens to affect our future.
White racism is essentially responsible for the explosive mixture which has been accumulating in our cities since the end of World War II. Among the ingredients of this mixture are:
Pervasive discrimination and segregation in employment, education and housing, which have resulted in the continuing exclusion of great numbers of Negroes from the benefits of economic progress.
Black in-migration and white exodus, which have produced the massive and growing concentrations of impoverished Negroes in our major cities, creating a growing crisis of deteriorating facilities and services and unmet human needs.
The black ghettos where segregation and poverty converge on the young to destroy opportunity and enforce failure. Crime, drug addiction, dependency on welfare, and bitterness and resentment against society in general and white society in particular are the result.
At the same time, most whites and some Negroes outside the ghetto have prospered to a degree unparalleled in the history of civilization. Through television and other media, this affluence has been flaunted before the eyes of the Negro poor and the jobless ghetto youth.
Yet these facts alone cannot be said to have caused the disorders. Recently, other powerful ingredients have begun to catalyze the mixture:
Frustrated hopes are the residue of the unfulfilled expectations aroused by the great judicial and legislative victories of the Civil Rights Movement and the dramatic struggle for equal rights in the South.
A climate that tends toward approval and encouragement of violence as a form of protest has been created by white terrorism directed against nonviolent protest; by the open defiance of law and federal authority by state and local officials resisting desegregation; and by some protest groups engaging in civil disobedience who turn their backs on nonviolence, go beyond the constitutionally protected rights of petition and free assembly, and resort to violence to attempt to compel alteration of laws and policies with which they disagree.
The frustrations of powerlessness have led some Negroes to the conviction that there is no effective alternative to violence as a means of achieving redress of grievances, and of “moving the system.” These frustrations are reflected in alienation and hostility toward the institutions of law and government and the white society which controls them, and in the reach toward racial consciousness and solidarity reflected in the slogan “Black Power.”
A new mood has sprung up among Negroes, particularly among the young, in which self-esteem and enhanced racial pride are replacing apathy and submission to “the system.”
The police are not merely a “spark” factor. To some Negroes police have come to symbolize white power, white racism and white repression. And the fact is that many police do reflect and express these white attitudes. The atmosphere of hostility and cynicism is reinforced by a widespread belief among Negroes in the existence of police brutality and in a “double standard” of justice and protection—one for Negroes and one for whites.
To this point, we have attempted to identify the prime components of the “explosive mixture.” In the chapters that follow we seek to analyze them in the perspective of history. Their meaning, however, is clear:
In the summer of 1967, we have seen in our cities a chain reaction of racial violence. If we are heedless, none of us shall escape the consequences.
 The term “ghetto” as used in this report refers to an area within a city characterized by poverty and acute social disorganization, and inhabited by members of a racial or ethnic group under conditions of involuntary segregation. Back to text.
Source: United States. Kerner Commission, Report of the National Advisory Commission on Civil Disorders (Washington: U.S. Government Printing Office, 1968)
See Also:“The Primary Goal Must Be a Single Society”: The Kerner Report’s “Recommendations for National Action”
“The Communications Media, Ironically, Have Failed to Communicate”: The Kerner Report Assesses Media Coverage of Riots and Race Relations