During World War II, tens of thousands of black people left the Southern states during the Second Great Migration, moving to Oakland and other cities in the Bay Area to find work in the war industries such as Kaiser Shipyards. The sweeping migration transformed the Bay Area as well as cities throughout the West and North, altering the once white-dominated demographics.[32] A new generation of young black people growing up in these cities faced new forms of poverty and racism unfamiliar to their parents, and they sought to develop new forms of politics to address them.[33] Black Panther Party membership "consisted of recent migrants whose families traveled north and west to escape the southern racial regime, only to be confronted with new forms of segregation and repression".[34] In the early 1960s, the Civil Rights Movement had dismantled the Jim Crow system of racial caste subordination in the South with tactics of non-violent civil disobedience, and demanding full citizenship rights for black people.[35] However, not much changed in the cities of the North and West. As the wartime and post-war jobs which drew much of the black migration "fled to the suburbs along with white residents", the black population was concentrated in poor "urban ghettos" with high unemployment and substandard housing and was mostly excluded from political representation, top universities, and the middle class.[36] Northern and Western police departments were almost all white.[37] In 1966, only 16 of Oakland's 661 police officers were African American (less than 2.5%).[38]
Civil rights tactics proved incapable of redressing these conditions, and the organizations that had "led much of the nonviolent civil disobedience", such as SNCC and CORE, went into decline.[35] By 1966 a "Black Power ferment" emerged, consisting largely of young urban black people, posing a question the Civil Rights Movement could not answer: "How would black people in America win not only formal citizenship rights, but actual economic and political power?"[37] Young black people in Oakland and other cities developed study groups and political organizations, and from this ferment the Black Panther Party emerged.[39]
In late October 1966, Huey P. Newton and Bobby Seale founded the Black Panther Party (originally the Black Panther Party for Self-Defense).[10] In formulating a new politics, they drew on their work with a variety of Black Power organizations.[40] Newton and Seale first met in 1962 when they were both students at Merritt College.[41] They joined Donald Warden's Afro-American Association, where they read widely, debated, and organized in an emergent black nationalist tradition inspired by Malcolm X and others.[42] Eventually dissatisfied with Warden's accommodationism, they developed a revolutionary anti-imperialist perspective working with more active and militant groups like the Soul Students Advisory Council and the Revolutionary Action Movement.[43][44] Their paid jobs running youth service programs at the North Oakland Neighborhood Anti-Poverty Center allowed them to develop a revolutionary nationalist approach to community service, later a key element in the Black Panther Party's "community survival programs."[45]
Dissatisfied with the failure of these organizations to directly challenge police brutality and appeal to the "brothers on the block", Huey and Bobby took matters into their own hands. After the police killed Matthew Johnson, an unarmed young black man in San Francisco, Newton observed the violent insurrection that followed. He had an epiphany that would distinguish the Black Panther Party from the multitude of Black Power organizations. Newton saw the explosive rebellious anger of the ghetto as a social force and believed that if he could stand up to the police, he could organize that force into political power. Inspired by Robert F. Williams' armed resistance to the Ku Klux Klan (KKK) and Williams' book Negroes with Guns,[46] Newton studied gun laws in California extensively. Like the Community Alert Patrol in Los Angeles after the Watts Rebellion, he decided to organize patrols to follow the police around to monitor for incidents of brutality. But with a crucial difference: his patrols would carry loaded guns.[47] Huey and Bobby raised enough money to buy two shotguns by buying bulk quantities of the recently publicized Mao's Little Red Book and reselling them to leftists and liberals on the Berkeley campus at three times the price. According to Bobby Seale, they would "sell the books, make the money, buy the guns, and go on the streets with the guns. We'll protect a mother, protect a brother, and protect the community from the racist cops."[48]
The initial tactic of the party utilized contemporary open-carry gun laws to protect Party members when policing the police. This act was done to record incidents of police brutality by distantly following police cars around neighborhoods.[52] When confronted by a police officer, Party members cited laws proving they had done nothing wrong and threatened to take to court any officer that violated their constitutional rights.[53] Between the end of 1966 to the start of 1967, the Black Panther Party for Self-Defense's armed police patrols in Oakland black communities attracted a small handful of members.[54] Numbers grew slightly starting in February 1967, when the party provided an armed escort at the San Francisco airport for Betty Shabazz, Malcolm X's widow and keynote speaker for a conference held in his honor.[55]
The black community of Richmond, California, wanted protection against police brutality.[59] With only three main streets for entering and exiting the neighborhood, it was easy for police to control, contain, and suppress the population.[60] On April 1, 1967, a black unarmed twenty-two-year-old construction worker named Denzil Dowell was shot dead by police in North Richmond.[61] Dowell's family contacted the Black Panther Party for assistance after county officials refused to investigate the case.[62] The Party held rallies in North Richmond that educated the community on armed self-defense and the Denzil Dowell incident.[63] Police seldom interfered at these rallies because every Panther was armed and no laws were broken.[64] The Party's ideals resonated with several community members, who then brought their own guns to the next rallies.[65]
In August 1967, the Federal Bureau of Investigation (FBI) instructed its program "COINTELPRO" to "neutralize ... black nationalist hate groups" and other dissident groups. In September 1968, FBI Director J. Edgar Hoover described the Black Panthers as "the greatest threat to the internal security of the country".[69] By 1969, the Black Panthers and their allies had become primary COINTELPRO targets, singled out in 233 of the 295 authorized "Black Nationalist" COINTELPRO actions.[70] The goals of the program were to prevent the unification of militant black nationalist groups and to weaken their leadership, as well as to discredit them to reduce their support and growth. The initial targets included the Southern Christian Leadership Conference, the Student Nonviolent Coordinating Committee, the Revolutionary Action Movement and the Nation of Islam, as well as leaders including the Rev. Martin Luther King Jr., Stokely Carmichael, H. Rap Brown, Maxwell Stanford and Elijah Muhammad. As assistant FBI Director William Sullivan later testified in front of the Church Committee, the Bureau "did not differentiate" between Soviet spies and suspected Communists in black nationalist movements when deploying surveillance and neutralization tactics.[71]
COINTELPRO attempted to create rivalries between black nationalist factions and to exploit existing ones. One such attempt was to "intensify the degree of animosity" between the Black Panthers and the Blackstone Rangers, a Chicago street gang. The FBI sent an anonymous letter to the Rangers' gang leader claiming that the Panthers were threatening his life, a letter whose intent was to provoke "preemptive" violence against Panther leadership. In Southern California, the FBI made similar efforts to exacerbate a "gang war" between the Black Panther Party and a black nationalist group called the US Organization, allegedly sending a provocative letter to the US Organization to increase existing antagonism.[72]
Malcolm, implacable to the ultimate degree, held out to the Black masses ... liberation from the chains of the oppressor and the treacherous embrace of the endorsed [Black] spokesmen. Only with the gun were the black masses denied this victory. But they learned from Malcolm that with the gun, they can recapture their dreams and bring them into reality.[75]
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